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IV, No. 5 



University of North Carolina 
Extension Leaflet 



COMMUNITY AND GOVERNMENT 

A MANUAL OF DISCUSSION AND STUDY OF 
THE NEWER IDEALS OF CITIZENSHIP 




PUBLISHED BY THE UNIVERSITY 

Entered as second-clsss matter March 14, 1918 
CHAPEL HILL, N. C. 



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THE BUREAU OF EXTENSION 

UNIVERSITY OF NORTH CAROLINA 

CHAPEL HILL, N. C. 



UNIVERSITY OF NORTH CAROLINA 
EXTENSION LEAFLET 



COMMUNITY AND GOVERNMENT 

A MANUAL OF DISCUSSION AND STUDY OF 
THE NEWER IDEALS OF CITIZENSHIP 



BY 
HOWARD W. ODUM, Ph.D. 

Director of the School of Public Welfare of the University of North Cdrolina 




CHAPEL HILL 

PUBUSHED BY THE UNIVERSITY 

1921 






COPYRIGHT, 1921 

BY 

THE UNIVERSITY OF NORTH CAROLINA 



JUN 10 192! 
IA617286 



PREFACE 

This manual has been prepared especially for those teachers, 
principals and superintendents of North Carolina who are inter- 
ested in the teaching and enactment of citizenship in accordance 
with the newer ideals of education, community and government. 
A previous manual, "Constructive Ventures in Government" 
has been made the basis for this re-statement of the problems 
of community and government. The general form and purposes, 
therefore, of the two manuals are essentially the same. 

The purposes are clear and simple. To promote the fascina- 
ting business of being and becoming citizens and the systematic 
study of social problems is one purpose. If, in the prosecution 
of this purpose, a renewed interest in democracy and a clearer 
idea of social responsibility may be created, a forward step will 
have been made. The added chapter on "The Meaning of Com- 
munity" looks to this end. 

To emphasize a citizenship and government based on the 
ideals of social service and achievement is another purpose. As 
wide and comprehensive as are the needs of its people, so in- 
clusive should be the government of a democracy. Our govern- 
ment can set no goal of achievement short of the highest devel- 
opment of the social personality and welfare of all its people. 

To magnify a training for citizenship based on knowledge 
and first-hand materials for the study of government is an- 
other purpose. While the enactment of this ideal seems new, 
it is original in the best theory of government. Madison's state- 
ment is good: "A popular government without popular infor- 
mation or the means of acquiring it is but a prologue to a farce 
or tragedy or perhaps both. Knowledge will forever govern 
ignorance; and a people who mean to be their own governors 
must arm themselves with the power which knowledge gives." 

To contribute to the growing meaning of community and the 
powers, obligations, and opportunities of local government is 
another purpose. Perhaps no greater advance has been made in 
the after-war period than the increased recognition of the in- 
stitution of community, whether it be community of organiza- 
tion, of fellowship, of industry, of arts and letters, of learning, 
of religion, or of citizenship. And certainly one of the consist- 



4 Community and Government 

ent points of emphasis in the ever-enlarging services of a larger 
national government is the increasing importance of good local 
government. 

To emphasize the companionable nature of both the study 
of and participation in government is another purpose. There 
is not only the enthusiastic and buoyant outlook of men and 
women working side by side for the bringing about of the newer 
ideals of citizenship ; but there is likewise the remarkable oppor- 
tunity for joining the great body of young men and young 
women in our educational institutions and out who are keenly 
interested and alive to the opportunities and obligations of 
social progress. 

The manual is, therefore, not in any sense a technical study 
of civil government, but a program of companionable study and 
action based upon the interpretation of present-day social prob- 
lems and needs of local, state and national government. It is 
planned to supplement previous manuals: one by Professor 
James Holly Hanford, of the Department of English, entitled 
"OUR HERITAGE : A Study Through Literature of the Amer- 
ican Tradition"; another by Dean D. D. Carroll, of the School 
of Commerce, entitled "STUDIES IN CITIZENSHIP FOR 
WOMEN" in which he outlines the technical forms of govern- 
ment; and a third entitled "AMERICANIZATION," by Mrs. 
Thomas W. Lingle. It is planned also to harmonize with the 
special studies which Professors Hamilton and Knight are pre- 
paring and the very valuable and original county studies which 
Professor Branson has been making and stimulating for the last 
seven years. 

It is not expected that any group will undertake all the 
readings or complete all the studies and projects suggested. 
The manual itself provides for essential minimums and its out- 
lines and suggestions offer stimulation for maximum achieve- 
ments in accordance with the disposition and resources of the 
groups concerned. It is arranged for special intensive studies 
of limited fields or for general study of the entire field. It 
may also be used in estimating the relative progressiveness of 
communities, counties, or cities in which use a sort of score 
card or measuring scale of progress may be made out by the 
club. Details of method for use of the manual may be gathered 



Community and Government 5 

from the part (VI) which discusses the readings and plans. 
Forms of co-operation on the part of the University Bureau 
of Extension are explained in the last division of the manual. 

Special thanks are extended to Dr. E. C. Brooks, State Super- 
intendent of Public Instruction of North Carolina, for his keen 
interest in the form and content of this manual and for valuable 
suggestions as to its effective use. It is hoped that experiments 
and projects being planned in the several communities will prove 
of definite value. 

HOWARD W. ODUM. 

Chapel Hill, November 15, 1920. 



CONTENTS 

PAGE 

Preface 3 

PART I 

The Meaning of Community 11 

The Meaning of Woman's New Part in Government — View- 
points, Motives and Objectives of Participation 20 

PART II 
Government and Social Problems of Town and City 43 

The city a complex of opportunity and obligation — Two 
decades of progress — The scope of municipal services — 
General administration — Financial methods — City 
planning — Public works — Public safety — Public health 
—Sanitation and housing inspection — Charities, correc- 
tions and public welfare — Public recreation — Public 
education — Miscellaneous services — Services to the ru- 
ral community. 

PART III 
Government and Social Problems of County, Village and 
Open Countryside 58 

County government and country life — Status of county 
government — The scope of county services — North 
Carolina county government — County officials — Forms 
of county service — Forms of co-operation — Country life 
problems and government — Economic problems — So- 
cial and institutional problems — Problems of organiza- 
tion and government. 

PART IV 
Government and Public Service of the State 64 

State functions — North Carolina administration — Pub- 
lic finance and business — Public welfare — Public health 
— Public education — Franchise and voting. 

PART V 
The Real Americanization Problems — The Nation 87 

Old and new Americans — Children and grown-ups — 



8 Community and Government 

PAGE 

The here and now of American government and democ- 
racy — Institutional modes of life — Special tasks of gov- 
ernment — The enrichment of citizenship. 

PART VI 
Bibliography and Plans of Study 93 

Explanation of bibliography — Suggested plans of 
study — Lists of books. 



COMMUNITY AND GOVERNMENT 



COMMUNITY AND GOVERNMENT 

PART I 

THE MEANING OF COMMUNITY 

1. An early community pact. Perhaps there is no more 
appropriate way of beginning this discussion of the meaning of 
community than with the example of a community pact typical 
of all our American democracy and free institutions and entered 
into three hundred years ago this eleventh day of November 
nineteen hundred twenty. For the Mayflower compact not only 
represents an ideal of a community of men and women coming 
together for certain very definite and inclusive purposes of 
association and welfare, but it is typical also of the plans and 
purposes of this manual of community and government, in that 
it reveals the true basis and method of community and govern- 
ment working together. The Mayflower compact may well serve 
also as a fitting conclusion and challenge to present-day com- 
munity work. 

"In the name of God, Amen, Doe by these presents solemnly 
and mutually, in ye presence of God and one of another, cove- 
nant and combine ourselves together into a Civil body politick 
for our better ordering and preservation and furtherance of ye 
ends aforesaid and By Verture Hearof do enact, constitute, 
and frame such just and equal lawes, ordnances, Acts, constitu- 
tions and offices from time to time as shall be thought most meete 
and convenient for ye general goode of ye colonic. Unto which 
we promise a due submission and obedience." 

2. Community and government. As in the beginning of our 
government, expressed in the Mayflower compact and a year 
earlier in the '^General Assembly" at James City in Virginia, 
community and government are inseparable in relationships so 
in our present-day efforts to give renewed energy and meaning 
to democracy, we must find in community and government the 
hope of greater realization. Group self-government in the com- 
munity is but another form of socially-minded citizens organiz- 
ing "for better ordering and preservation." For government 
in a democracy is of the citizens themselves, here and now in their 



12 Community and Government 

midst, and not something apart and mystical. As the govern- 
ment is, so is the service to the citizen. The individual in the 
community may wrongly think he can separate himself from his 
government ; but if there be poor government, whether in health, 
education, protection, convenience, or any other form, the citi- 
zen suffers. And poor government in the community, on the 
other hand, can be corrected only by the citizens themselves. 
Community organization, therefore, becomes one of the chief 
modes of good government. 

3. Community and democracy. The same is true of democ- 
racy itself. A great America composed of thousands of com- 
munities must, of a necessity, render its democrary through its 
communities. To quote Follett, "The technique of democracy 
is group organization." And Mr. Louis D. Brandeis expresses 
a similar sentiment when he affirms that "The great America 
for which we long is unattainable unless that individuality of 
communities becomes far more highly developed and becomes a 
common American phenomenon. For a century our growth has 
come through national expansion and the increase of the func- 
tions of the federal government. The growth of the future — at 
least of the immediate future — must be in quality and spiritual 
value. And that can come only through the concentrated, inten- 
sified strivings of smaller groups. The field for the special 
effort should now be the state, the city, the village. ... If 
ideals are developed locally the national ones will come pretty 
near taking care of themselves." One would need to test the 
efficacy of democracy only by applying it to the institutional 
services which it renders to the citizens in the community, in the 
home, in his school, in his work. If only our growing citizen 
may realize the bigness of the task ahead — to develop the com- 
munity democracy of the future, based upon the ideals of 
national government and co-ordinated by the central govern- 
ment of states and nation! 

4. The romance of democracy. Community welfare is but 
the enacted romance of democracy. All our plans of democracy 
have been based on ideals and the romance of a universal wel- 
fare. "What has made the democracy real is the fact that 
America has "made good" the statements, dedications, and cove- 



Community and Government 13 

nants of the early groups of community folk working together. 
The great state papers of the Nation, fired with their idealism 
and romance, are great, as Mr. Roosevelt points out, because the 
American people have made them good. The ideals of democracy 
expressed by Mr. Wilson in his great addresses will be real 
and great only as the American communities make them true. 
Throughout the history of this country we have written, spoken, 
and dreamed dreams of a government in which all the people old 
and young, rich and poor, strong and weak, would have a chance 
in life. We have never debated any other alternative. And 
yet, when it comes to the enactment of this idealism, community 
democracy and organization must largely bear the responsibility 
of making the romance of our aspirations real. 

5. The community and state. The most striking example 
of the failure of a government to make good its ideals is that of 
the German nation. This has been explained, perhaps more 
satisfactorily than in any other way, by the fact that all of 
Germany's idealism was attacked from within as faulty and in 
its stead substituted a mechanical sovereignty neglectful of the 
individual and the community self government. The American 
tendency ought to be the opposite although oft-reminders seem 
necessary. Just as the ideals of community government are 
prominent in the growing conceptions of the modern state, so 
in the unit of national government expressed in our ''states" 
there is recognized an invaluable agent for democratic govern- 
ment. The "state" as one of the units of national government 
becomes a larger community capable of carrying forward a 
better representative government. Likewise this unit of state 
government finds its strongest forces for democracy in its coun- 
ties, cities, towns, villages and rural communities, all of which 
are coming to a fuller realization of the bigness of community 
organization and service. 

6. The community and the school. Even the school, with its 
redirected programs for the teaching of active citizenship, finds 
the community, in the long run, its arbiter. For the school can 
be no more democratic than the community in whose image it 
is fashioned and the teachers whose training .the community 
fosters ; nor can the quality of its democratic education be much 



14 Community and Government 

different from that of the commimity responsible for its per- 
sonnel and government. This conviction has led Professor Hart 
to conclude that "the democratic problem in education is not 
primarily a problem of training children; it is the problem of 
making a community within which children cannot help growing 
up to be democratic, intelligent, disciplined to freedom, reverent 
of the goods of life, and eager to share in the task of the age. ' ' 
But the school and education, more than any other force per- 
haps, can make and remake the community after the fashion of 
socially-minded, self-governing and mutually participating 
groups. The school can offer its instruction and its plant for 
the centering of community activities and for the promotion of 
community knowledge and spirit. The school can teach its 
citizenship on the basis of these ideals and upon the actual work- 
ing basis of community projects and community interest. The 
teachers and administrative officials themselves will become better 
grounded in the fundamentals of local and state government 
and will thereby become better teachers and better officials. 

7. A basis of citizenship. The community, therefore, for the 
school, becomes the greatest laboratory of citizenship. While it 
is true that the school itself may become a little democracy, 
utilizing its organization and its functions for the promotion and 
practice of democracy, the real laboratory for democracy must 
be in the community. Here are all the institutional modes of 
life as expressed in the home, the school, the church, the state, 
and industry or work. Here are the scores of "little states" 
themselves. Here are opportunities for organic democracy, poli- 
tical democracy and educational democracy. Here are citizens in 
the making and older citizens in the re-making. Here are prob- 
lems of association and recreation; of government and politics; 
of employment and leisure ; and of all the other human interests. 
When, therefore, the school can know its community and its 
citizens, and when the community can know its school and its 
work, new forces will have been released for the bringing up of 
well trained citizens for the future. 

8. The community an institution. It must be very clear, 
therefore, that the community is an institution. For some time 
we have considered only four major institutions that make for 



Community and Government 15 

civilization and social progress — the home, the school, the church 
and the state or government. To these we have now added 
community and industry. If one wishes to test the power and 
significance of community as an institution he would but need 
to inquire into the possibilities of the family without community 
support ; or of the school, or government, or of the church where 
the community is divided, or of conditions of labor where the 
community takes no thought for the welfare of workers. Or, 
again, what of the opportunities and obligations of play and 
recreation ; of general social life and pleasuref ul association ; of 
voluntary organizations and benevolent societies; and of the 
many forms of association not included in the other institutional 
modes of life? For almost unlimited good or evil have been 
many of the community's contributions and neglects in the 
realm of its own responsibility to its growing-up citizens. But 
even as the community must contribute to its fellow-institutions, 
so must the home, the school, government, church, and industry 
contribute their utmost to the making of the community a better 
place in which to live. This correlation of the institutions is 
one of the finer tests of community democracy. 

9. The evolution of the community. If there could be further 
doubt as to the meaning of community it would be necessary 
only to trace its development and influence in the past, to note its 
present moulding of democracy, and to look forward to its grow- 
ing power in local, national and international development. The 
history of peoples, of course, begins with the family; from the 
family grew, through association and co-operation in community 
efforts, the phratry, the gens, the clan, the tribe, the confeder- 
ation, the nation, the empire. These organizations arose out of 
the imperative need for commimity co-operation for purposes of 
defense, subsistence, worship, special projects and others. The 
community of efforts and association has been the beginning and 
the mode of survival. Where no community co-operation could 
be effected survival was barely possible ; community, therefore, 
becomes in its spirit and form a fundamental in the develop- 
ment of all society and government. The spirit of community 
is essential. The American nation had not realized, prior to the 
great war, to what extent it was a community of communities; 



16 Community and Government 

the aggregate of community organization and effort during the 
war made the total national power. And if one looks to the 
future, to possibilities of the international mind and international 
relations it is very clear that community of interests and organ- 
ization must be the only mode of relationship. The larger com- 
munity of fellowship, learning, labor — and others — will contri- 
bute to whatever of technique that may make for world peace 
and fellowship. The school, in its promotion of community 
citizenship draws on its age-long resources and is therefore 
working in harmony with its fundamental history and principles. 

10. The individual and community inseparable. It is very 
clear also, from all the above viewpoints, that the individual 
good is inseparably bound up in the community. If the aim 
of all our democracy and social progress be the highest possible 
development of the individual, through his social personality 
and relationship, it will be seen that the community's relation 
to the individual is fundamental. There have been individuals 
and families who have believed that they were independent of the 
rest of the community; that they could live their own lives 
heedless of the needs and limitations of the community. Came 
the day when disease or vice or poverty which they and the rest 
of the community had allowed to permeate the group disproved 
this theory. There have been families who held that theirs was no 
responsibility to other families or to the community's responsi- 
bility to its people. And the day has come when disease or vice, 
permitted by them in the community, has entered the home and 
taken away all that was uppermost in their lives and purposes. 
No individual or family can become isolated from the community, 
and it becomes, therefore, not only a duty, but a privilege and 
opportunity for every individual and every family to join hands 
in making the community a suitable example of democratic 
opportunity. Even as in the history of the community, so 
to-day, the individuals and communities who do not co-operate 
in community democracy scarcely survive in the long run. 

11. Local communities interrelated. Of special importance 
and illustrative also of the task of democracy, is the close inter- 
relationship of community to community. Evidence of this 
is abundant. It is easily manifest in the school where one com- 



Community and Government 17 

munity, having neglected its duty to the child, sends it on to 
another community; it is evident in the counties, where one 
county, having neglected its opportunities for rendering health 
and education service to its children, turns them over as burdens 
to another county. It is evident in the matter of work and 
morals; in progressive and non-progressive tendencies; and 
wherever communities touch in social relationships. It is very 
clear, therefore, that each community must find its positive 
obligation to develop its highest organization and service, and 
likewise must contribute, wherever possible, by example and 
participation, to the promotion of the highest development of 
community welfare everywhere. The very basis of uniform 
citizenship and democracy rests upon uniform community de- 
velopment and service everywhere. The task of every school, 
therefore, becomes increasingly important as it undertakes the 
teaching of citizenship and the building of community spirit. 

12. Community ideals. There are many ideals of community 
work and association, even as there are ideals and possibilities 
in democracy and human aspirations. Some of these may be 
mentioned as typical. Every community ought to know itself 
and its citizens. "To know each other well enough to work 
together and to play together" ought to be a reasonable stand- 
ard. Do we know each other so well? Would we not under- 
stand each other better and eliminate much of the limitations of 
working together if we knew each other better? Is not this an 
attainable ideal under the plan of community organization? 
The community will have other ideals in view. Sometimes the 
beautification of town and surrounding neighborhood is fore- 
most ; sometimes an economic ideal needs to be worked out ; some- 
times it is the problem of schools and teachers; sometimes it is 
the matter of streets, roads, health, and the general welfare. 
Sometimes it is the community spirit and recreation that pre- 
dominates; and sometimes the prevailing interest is in local 
government itself through which the other ideals are to be con- 
tributed. 

13. The community at work. But whatever the ideals and 
the specific purposes for the time being, the -community finds 
itself facing many tasks of importance. The community at work 



18 Community and Government 

becomes an inspiration to democracy. And while there are 
many modes and methods of work the ultimate goal will be as 
nearly complete and efficient community organization as possi- 
ble. On community organization an entire chapter will be 
necessary. Its form will be conditioned by the nature of the 
community, the purpose involved, and the resources available. 
Sometimes the community center forms a large part of the 
organized efforts of the community and combines with the school 
to make a clearing house for community activities from voting 
to play. Sometimes there is a general civic center which joins 
with schools and other institutions. Sometimes the churches 
contribute to organized community work. Sometimes the larger 
part of community work is done by the community club. Some- 
times there are various organizations such as the woman's club, 
civic associations, chambers of commerce, and others. Sometimes 
community activities take the form of community fairs and 
gatherings, exhibits and clinics, campaigns and projects. And 
sometimes governmental and semi- governmental co-operation 
constitutes a large part of community organization, as for in- 
stance public welfare programs, home and farm demonstration 
agents, health officers, school teachers and officials. Not infre- 
quently to the local voluntary associations and agencies national 
voluntary agencies contribute much. 

14. Federated community service. In all the work of 
organization and promotion the community may well hope to 
work out a federated plan of service which will answer the 
greatest possible service with the least possible waste and dupli- 
cation. Such a federated service would provide a close corre- 
lation of the efforts of all departments of public service among 
themselves and also a similar close correlation with voluntary 
agencies. Not infrequently the best plan of federating all efforts 
is found in a county council or other county organization looking 
toward the complete service to the county and all its communi- 
ties. The problem of Health is a good example; education and 
the school represent another form of the county unit method of 
work. "Whatever the form of co-ordinated activities, the school 
finds itself a stragetic position and can contribute largely to suc- 
cess. 



Community and Government 19 

15. Types of communities. The nature of work done and 
the form of organization undertaken, as well as the number and 
character of the personnel of workers will depend much upon 
the type of community. It is quite evident that the city will 
have within its domain different types of communities from the 
general community of the small town or the village. The town 
will be different from the country community and communities 
in the cities, villages, and rural districts will differ among them- 
selves. The very boundaries, territory and distinctions of com- 
munities vary greatly. Sometimes the community is centered 
around the school; sometimes around the several churches; 
sometimes a post-office or trading center ; sometimes a community 
may be bounded by its newspaper constituency or by its technical 
political or civil divisions of county and district. In the city it 
may be even a block, or ward, while in extreme rural districts 
the community may be bounded by streams or hills. 

16. The small town community. The city and its problems 
of community organization have been the subject for much study 
and planning, and with success. The rural community is now 
being estimated as one of the most important problems of educa- 
tion and welfare. And this should be true. More should be done. 
Of special importance, however, from the viewpoint of the 
school is the small town community which has much of the 
county and city alike. Its possibilities are almost unlimited 
for good — and sometimes it seems for evil ! And, because of its 
reasonable size, its democratic citizenship, its neglect, its crowds 
of merry boys and girls, it is a challenge to the school for the 
development of the perfect community. Shall we not make of 
the small town the ideal of community living? 

17. Active Citizenship. The community offers an almost un- 
discovered field for leadership and active citizenship in the pro- 
motion of community organization and local government. The 
following pages of this manual suggest some of the many oppor- 
tunities available for the active citizen. To young men and 
young women, to the newly enfranchised women voters, and to 
voters of many years, the community calls. To all these and 
especially to school folk everywhere comes the heartening appeal 
of community and government. 



20 Community and Government 



THE MEANING OF WOMAN'S NEW PART IN GOVERN- 
MENT 

18. Progress in democracy and government. The early 
years of this century will always remain eloquent with notable 
records of achievement in democracy and government. Even 
before the Great War the very definite tendencies toward larger 
ideals of government had resulted in achievements of no. little 
value. These achievements consisted not alone in improved or- 
ganization and structure of democratic government but more 
essentially of the growth of community building through citizen 
interest, civic co-operation, and active participation in govern- 
mental services. Here were opened up new fields, new visions, 
new opportunities with practical difficulties and practical re- 
sults available for the citizen of today and tomorrow. In the 
realm of community building, public service, and patriotism 
the citizen of today may reach goals unknown to the citizen of 
yesterday. And to this pre-war ideal the war itself has given 
great momentum, tending to give it direction and form adequate 
for after-war progress and public welfare standards. 

19. The war and democracy. Then came the Great War in 
which not only the spirit of our democracy but also the very 
form of our government was tried by the fire of the world 
crisis. Would the spirit and soul of democracy, functioning 
through our fundamental American institutions, not only pre- 
serve its own traditions but blaze forth for the international 
mind and spirit the great truths of a progressive government, 
strong enough and big enough to cherish and cultivate the 
ideals of a people, and at the same time maintain their active 
and faithful interest in the means and forms of government 
control ? Would the machinery of a government, by and for the 
people, stand up under the test of gigantic struggle and unfore- 
seen emergency, while putting to rout the forces of govern- 
ments whose ideals and enactments would make machinery 
of men? The victory of our ideals is tribute to the contrast 



Community and Government 21 

between our own potentials and the Europeans whom Mr. Chap- 
man describes as loving too much "the glittering wares". 

That art and education had devised 
To charm the leisure of philosophers; 
The thought, the passion have been undersized 

In Europe's overeducated brain; 
And while the savants attitudinized, 
Excess of learning made their learning vain 
Till Fate broke all the toys and cried, 

Begin again! 

America does begin again but in the triumph of liberty 
whose cause transfigures the tragedies of struggle and chal- 
lenges all citizenship not to forget too soon the ideals and 
achievements of recent democracy. 

20. The 19th amendment. The third great achievement is 
found in the enactment of the nineteenth amendment to the 
Federal Constitution of the United States. This amendment, 
granting to women the right of suffrage, constitutes one of the 
most definite and positive contributions to the theory and prac- 
tice of government ever recorded. "Within the few days that 
have elapsed since the Secretary of State certified to the validity 
of the amendment most citizens have scarcely realized the im- 
portance of the step. Here again both the spirit and form of 
our government are vitally affected. Certain it is that, in 
spirit, the amendment recognizes the great principles underly- 
ing representative government in giving to the people governed 
the rights of expression through representative modes of de- 
mocracy. Democracy has been called the last and best solution 
of the social problem; the 19th amendment may be said to be 
the latest contribution to the solution of the problem of democ- 
racy. And while ranking perhaps as the greatest contribution 
of modern times, it will nevertheless, for a time, add new diffi- 
culties and problems to be worked out in the effort to realize 
adequate form for the expression of the ideals of democracy. 
Certain it is also that the coming of a new body of voters, v^^ith 
capacity potential approximating the present body, will affect 
the technique and practice of our government in the manner 
of elections, in the personnel of officials, and in the manner 
and methods of government operation. All these problems are 



22 Community and Government 

a suitable challenge not only to the new voters but to the old 
as well. One may well doubt the efficacy of the patriotism of 
citizens who will not recognize the tremendous meaning of the 
new movement and set themselves wisely and seriously to the 
tasks ahead. 

21. Woman of the ages. In the desire to understand and 
interpret the possibilities of the hour one would fain become the 
world artist and paint, with the master's hand, the composite 
spirit of womanhood, reviewing the past with its aspirations, 
joy and sorrows; its heritage of rich and joyous living; its 
never-ceasing story of romance ; withal its age-long tragedies and 
pitfalls of organic struggle; and its immeasurable contribution 
to the eternal values of human institutions. In this instance, 
perhaps the artist must needs paint the picture of the spiritual- 
ized American grandmother sitting in her corner when the day 
is done, dreaming dreams of yesterday, but 

mute prophetess 
That, on the marble furrows of thy brow, 
Wearest the print of wisdom and of peace. 

How often, the artist sees, has she, all soul, her mind travers- 
ing the reach of years, dreamed dreams of what was, might 
have been, and would yet come! How the world of children 
and grandchildren have valued the quiet wisdom that, although 
unconscious of its grasp and scope, seemed to bespeak unfailing 
solutions of difficulties. The spirit of her wisdom, and of her 
sorrows in the days of weakened energies, permeates the "here 
and now" of the new ways of meeting her old, old problems. 
And not hers only; but the problems of the mothers of men in 
the making of the nation; of the sisters of men in the service 
of humanity; of the sweethearts of men in the struggle for the 
romance of durable happiness; of the wives of men in the weav- 
ing of the home fabric; of the workers of days in the walks 
companionable with men; of the teachers of children in the 
tears of discouragement ; of the professional worker in the prob- 
lems and progress of opportunity; of the myriad youth in the 
yearning for that chivalry granted by men to the few; of the 
servants of men in the shame of the race; yea, and of all that 
throng of youth and beauty and joyous womanhood that chal- 



Community and Government 23 

lenges the processes of progress. Surely the spirit of all these, 
and more, call upon men and women everywhere to meet with 
serious consideration and high motive the opportunities of the 
changing hour. 

Or, perhaps the artist, seeking if perchance he may find 
more nearly the modes of human progress, becomes the student 
of literature "wherever it has touched its great and higher 
notes" as the ''expression of the spirit of mankind". And, 
fascinated with the beginnings of imaginative creations and al- 
legorical heritage he becomes youth again, lost in the contempla- 
tion of the fairy fancies of the world. 

And olden joys 

That I had long forgot 

Come running back like crowds of merry boys 

Let out from school, 

Filling the air with happy noise; 

I hear again my mother's evening croon 

Falling about me like the cool. 

Clear water in a shadowy grot, 

And all the simple things 

That gave naive delight to me 

When I was young. 

And, following the stories and ideals of a fairy land and fairy 
power whose annals record the happiness of only the millionth 
little girl whose prince comes to take her to his palace, he wonders 
what of the fairy philosophy which would make happy also all 
the little girls in the realization of a richer fruition of the 
fullness of life. Were the fairies, too, a part of the old despotic 
and undemocratic dispensation which made women the servants 
of men or left the myriad hosts of womankind longing to the 
end of days for something that was not? Or, since surely 
fairies can do no wrong, was not the figure of the prince and 
the princess symbolic of the new day when every woman should 
look forward to the palace of citizenship what time she ful- 
filled her feminine destiny? And was not the prince the spirit 
of man reborn to the world with the strength of ten because 
his heart was pure? And has not, and will not every little girl 
look forward always to the palace and the prince? Or, once 
again, the fairies catch up from the midst of its -home, the home 
of a poor man and his wife, the little child; and because the 



24 Community and Government 

parents are poor the fairies take the child away from the par- 
ents and translate it to some mj'-stic forest or glen where all is 
silver and gold and brightness. And the youthful student of 
imaginative literature wonders again if the little child is really 
happy or if the parents, lonely for the presence of the child, 
really love the fairies? Or, supposing they were happy, what 
of the myriad throng of children of the poor for whom no 
fairies come? Why not a fairy philosophy which would take 
away poverty from the homes of the people and make happy 
hearthstones with unity and prosperity? Are these fairies, too, 
a part of the old dispensation of the breaking up of homes and 
of child injustice for which women have suffered so much? 
Or, since fairies can do no wrong, are not the beautiful en- 
chanted wood and forests symbolic of the new day when the 
little children and the mothers of men everywhere shall reap 
together the fruits of a christian democracy of the substance of 
which is the kingdom of heaven? 

22. The great contribution. But whether interpreted through 
fact or symbol, the opportunities and obligations of suffrage as 
expressed in the present situation offer the greatest potentials 
of progress. ''The new citizenship" is being described as the 
citizenship of woman ; as her participation in government. And 
surely, this is a newer sort of citizenship. But the really new 
citizenship, it must be remembered, is after all the total prod- 
uct of all citizenship, men and women, as it results from the 
participation of woman with her very definite contributions to 
current government. For there can be but one citizenship ; 
it will be complex but not compound. The pages of this bulletin 
will indicate to some extent the qualities which woman's en- 
trance into formal government will bring. But there is an- 
other, and if possible, even more important meaning of the 
present hour. Men have long said that the world progresses in 
the quantity of achievement, but perhaps not in the quality of 
mind and spirit. They have affirmed that the intellect of Plato 
and Aristotle and Shakespeare represent the highest modes of 
human achievement. They have wondered what new era might 
bring to the human mind its new quality and its stages of 
progress. Whether this will come about or not may not be 
affirmed with knowledge; but certain it is that one of the great 



Community and Government 25 

possibilities of the century will be the contributions to the 
growth of a richer social mind, made deeper and more compos- 
ite, by the interplay of the minds and spirits of men and 
women set free for unbounded development and growth. "Wheth- 
er this be fact or fancy will no doubt depend upon the degree 
to which the processes of association of men and women pro- 
gress in accordance with the fundamental laws of growth and 
the essential principles of human association. And in this pro- 
cess of development it is certain that woman has a very definite, 
distinct and distinguished part to play. 

23. Two professions for women. For sometime now educa- 
tors and students of social progress have maintained that for 
every woman there are at least two professions or • vocations, 
and they have turned the processes of education in the direction 
of meeting the needs of these vocations. They have affirmed, 
and with accuracy, that the business of home making and home 
keeping is a fitting vocation for every woman sometime during 
the days of her pilgrimage. No matter how she may seem to 
evade the subtle influences of a Cupid or turn her energies, 
personality and genius to single blessedness, comes the day when 
the call of love and home, joining hands with the call of other 
duties, becomes the dominant theme and wins. And for the 
ages past, present, and to come this will be a substantial mode 
of fulfillment of the great destiny. Therefore, the schools of 
progress have turned their energies and skill toward the en- 
richment of their curricula for young women who will become 
the citizens and home makers of tomorrow; and the citizens of 
today rejoice in the progress of an education which brings to 
normal, everyday living the durable satisfactions of life and the 
larger measure of intellectual and spiritual growth. And on 
the other hand, they have recognized in the stories of human 
fortunes throughout the days of yester-year, and in the normal 
expectations of social relations now and on, that the desire and 
occasion for working out her own economic salvation may also 
come to every woman, and is for every woman another normal 
mode of working out her own and the race's progress. No 
matter how independent and free, therefore, from the need of 
personal achievement may appear the daughter of wealth and 



26 Community and Government 

fortune there has never come on earth a dispensation which 
guarantees the elimination of circumstances which may call 
urgently for readjustment in the hard and practical things of 
life. No more eloquent evidence of this has been found than 
the stories of the Old South with her romantic readjustment 
to after-war conditions of the sixties. But greater than the 
emergency need which may bring woman into the realm of vo- 
cation has been the ever increasing tide of new realizations on 
the part of women of their possibilities and heritage in the 
j&elds of human endeavor. And so, again, the schools, and so- 
ciety in general, have provided for the training of women work- 
ers, sometimes in the practical vocations; sometimes in the 
fields of profession; and again the citizens of today have re- 
joiced in the increasing power of service and growth which 
has come to add its momentum to the enrichment of woman's 
sphere. 

24. A third profession. And now, to these two, are added 
a third profession for every woman — the profession of citizen- 
ship. And there is a very happy circumstance about this new 
profession, and that is, that the more proficient one becomes in 
it, the better prepared will she be for superlative achievement 
in the other two professions. And there is another happy re- 
lationship in this new profession, and that is, that the more pro- 
ficient one becomes in the other two, the more efficient she will 
become in the new profession. Here, then, is happy harmony 
of the active life. Here is challenge for thanksgiving, tempered 
with serious determination to make it all count for the enrich- 
ment of the sacred qualities of life and service vouchsafed to 
woman. Here is challenge to make the new opportunity count 
in all the realms of life, but especially where only woman enters 
in 

With footfall soft, and walkest in the glooms 
Where none save thee may come 

and to count in the enrichment of the institutions that make 
for civilization and social progress. For the processes and fruits 
of citizenship must surely be measured by contributions to life 
and its living in social relationships. 

25. The three-fold measure. And there is another form of 
the three professions which must challenge the idealism of ev- 



Community and Government 27 

ery woman whose keen and spiritual insight into the greatest 
possibilities of life has visioned the glory of her outlook. And 
this is, rather, the three stages of adaptation to the three pro- 
fessions described. Perchance there comes to young womanhood 
the eager desire to achieve in life or letters, or in the perform- 
ance of task set about with great difficulties or in need of single- 
ness of purpose or undivided devotion to its pursuit. This 
becomes her art or profession; her pursuit of achievement and 
destiny. Shall the realization of work well done here and of 
qualities well earned be followed also by the second stage in the 
ideal, the achievement of success and happiness in the home and 
motherhood ? And shall the glory of this achievement of wealth 
of life and happiness be succeeded by the heritage of later 
years devoted to the fascinating business again of work-a-day 
profession or the calling of citizenship; perhaps in companion- 
ship with children grown up to partake of the newer ideals of 
citizenship; perhaps in companionship with women whose asso- 
ciation gives life and career its deeper joys; but in all cases, 
in companionship with men and women, younger and older, 
and with little children of the community, in making this 
country a better place to live in and in filling time with its 
due measure of productive activity. 

26. The newer freedom. Who shall affirm that, in the per- 
fection of ideals in the three aspects of life described in the 
paragraphs above, there will not come an enlarged service to, 
not only womankind, but to men as well? And to the devel- 
opment of the social personality of men and women, which after 
all, is the final goal of social organization and effort? If the 
ever-increasing power of the present day shall result in the 
transformation of the world-old moral standards of that pro- 
portion of the man's world which has been unwholesomely dom- 
inant in the realms of the double standard, a new era of pos- 
sibility for the youth of the next generation will have been 
reached. And for the myriad little children whose futures lie 
like shadows ahead of those who move their destinies there will 
come an ever-increasing freedom from the deep tragedies of the 
sins of the fathers unto the third and fourth generations. And 
the new freedom of womankind, not freedom of misspent words 
or misguided and aberrant ideals of normal life, but the freedom 



28 Community and Goateenment 

of association and living in the bigger realms of life unafraid of 
degrading standards or misunderstood motives — what will this 
not contribute to the institutions and wholesome citizenship of 
men and women everj^where? And how rich also will be the 
gain of the age from those outstanding individuals who, de- 
priving themselves of the full fruition of a three-fold develop- 
ment of citizenship, yet proclaim through service and unalter- 
able devotion to ideals the greater doctrines of the co-ordinated 
citizenship of the new day! 

27. Strengthen institutions. But, after all, one may well 
prophesy that the greatest gain that will come from the en- 
trance of women into formal participation in government will 
be the enrichment, development and strengthening of our great 
American institutions. It may well be estimated that such a 
service is now the greatest need of our democracy — the revital- 
izing and strengthening of the institutions which make for the 
better civilization and social welfare. For our democracy, rep- 
resenting the ideals and forms of a government whose sole pur- 
pose is to give service to its citizenship, must needs be measured 
in terms of sanctioned organizations and forms of association 
looking toward the betterment of all. These sanctioned forms 
of organization and association are the institutions and are 
fundamental in all organic theories of social organization. One 
of these essential institutions is government itself. Another of 
the great institutions is the home and family. There are four 
other principal institutions: the school, the church, industry, 
and community. Or, at least, it is permissible for us to so class- 
ify all forms and modes of institutional life. And when we shall 
have worked out our problems through the perfecting prin- 
ciples of these six institutions — the home, the school, the church, 
the state, community, and industry — will not the ideals of ' ' that 
far-off divine event to which the whole creation moves" be- 
come realities? And who shall deny that woman's new citizen- 
ship, adequately prosecuted in accordance with the funda- 
mentals involved, will not contribute — and largely — to better 
homes, better schools, better states, better churches, better com- 
munities, better work and working conditions? Prophecy of 
evil indeed, and based upon unscientific principles and pessi- 
mistic outlook would be such a forecast — prophecy giving evi- 



Community and Goveenment 29 

dence of an unwillingness to join hands, in public spirit and 
private enterprise, with the present call for service. 

28. The home and family. It is an old, old fundamental 
that the home and family constitute the basis of our society — 
and yet an ever new and ever increasingly evident fundamental 
of life and society in our own day and generation. It is the 
smallest unit of organization and the essential basis of the very 
existence of populations and of training in living qualities of 
citizenship and the social nature. Those who forget this prin- 
ciple but give evidence of the immaturity of their thinking or 
the lack of acquaintance with the history of social development. 
For, there has not been a survival of associations on the basis 
of instable family life, and the experiment has been tried 
throughout the ages in as many forms and methods as the mind, 
impulse, and experience of mankind could devise. Those who 
would destroy the power of the family to function in its fullest 
capacity, whether they be advocates of non-participancy in 
family life, or whether they be heads of families disloyal to the 
rights and eternal values of women and children, are enemies 
to the race. Our laws provide extreme punishment for those 
who take the lives of individuals — what should be the penalty 
of those who murder the institution of home and family, the life 
giving institution for many individuals? And it would appear 
that there never was a time when men and women need more 
to realize the importance of these fundamentals than now. For 
need one look further for opportunities to express in vital form 
the opportunities of citizenship which shall undertake the bet- 
terment of home life in the case of individual citizens themslves 
and in the need for legislation and guidance for the promotion 
and protection of the home and family? Who, better than 
women, should speak and act with unerring insight and knowl- 
edge? What conception of American womanhood can portray 
her utilizing a citizenship disloyal to these principles? Let us 
not confuse the dangers of complex situations arising in the 
midst of new problems, with the negation of organic and funda- 
mental principles of life. 

29. The school. And what of the other institutions? Do 
they need work-a-day, wholesome, civic participation and en- 
couragement? And better legislation and direction as the days 



30 Community and Government 

of progress multiply? Are women citizens interested in the 
school? Or do they know of its problems and its burdens and 
its needs? Do they not send to its portals the thousands of 
those citizens-to-be of whom the old writ exclaimed ''The world 
is saved by the breath of the school children"? Do they not 
teach the children in proportion ten to one as compared with 
men, the voters of today? What must be the ideals and con- 
ception of an American womanhood which would use a citizen- 
ship unfaithfully in the consideration of an institution in which 
all her children must stand by and carry on in the learning 
processes of early life? The schools are the institutions of the 
people — the citizens. Perhaps, for the most part, at least in 
many instances, the people — the citizens — have not become in- 
formed and serious concerning this great need for the training 
of children and for the promotion, protection and conservation 
of health and mental powers. Sometimes, citizens unthinking 
and unknowing, have delegated for the care of their children 
houses in unchosen places, houses unfit for ordinary habitation, 
admittedly, but good enough for schools. Sometimes similar 
conditions with reference to teachers and equipment and the 
opportunities for children in the schools have been overlooked 
in the same way. Is it not likely that the new citizenship will 
contribute tremendously to the betterment of schools ? And can 
there be a more worthy undertaking? Or more varied oppor- 
tunity for citizen participation in this form of government? 

30. The state. And what of the state? And by "state" 
we mean, of course, the formal organization for the administra- 
tion of government. It may mean national government with its 
greater policies for democracy; it may mean local state govern- 
ment with its rights and privileges of legislating for the good 
of its constituen'cy ; it may mean local county government with 
its complex and difficult problems of service to the people; it 
may mean local city and town government with its intensely 
concrete problems of government for public service; it may 
mean the local township and community government which looks 
to the best development of the interests and welfare of the 
citizens of that community. Or it may mean the conception 
of a democratic government in its ideals and principles of rights 
and services to all the people, with its ever forward-look toward 



Community and Government 31 

making each generation a little better than the preceding one. 
Perhaps we need in these present days to believe in govern- 
ment; perhaps a big wholesome faith and belief in government 
is the most important need of the hour when selfishness tends 
the world over to develop into universal individualism. And 
who, more than the woman citizen, has the capacity and dispo- 
sition to believe in things that are fundamental? Who, more 
than she, will stand by its institutions with loyalty born of 
generations of high service and character? If ''women in pol- 
itics" could only come to mean women in, what Aristotle called, 
the noblest of all the sciences ! For politics is the science of 
government — and should it not become the noblest of sciences 
in reality as well as in theory? Is it humanly possible to con- 
ceive of such enactment without being accused of the utmost 
dreamer's dreams of the visionary? If there is such possibility, 
will it not come about through the new era in which the many 
mistakes of the beginning will be transcended by the ultimate 
triumph of a better democracy? 

31. The community. One of the distinctive developments 
of recent years, and especially of the after-war adaptations, is 
the growing recognition of the community as an institution of 
social progress. This, of course, is easily recognized in the em- 
phasis placed upon community government which must solve 
its own problems of social relationships in common with its own 
interests and resources. But more than this, it is recognized 
that during the great war of stupendous achievements much that 
was done in the great cumulative building and using of re- 
sources came through the mass of communities organized to 
achieve the goals desired. No more inspiring chapter has been 
written than that of the awakening of community and com- 
munity spirit and co-operation in the efforts to attain great and 
laudable ends. And in this story the plot of it all centers 
largely around the part which women workers played in the 
total achievement of community endeavor. The community 
must always remain the bulwark of our national power; its de- 
velopment, therefore, and organization become one of the fine 
tasks ahead. There are not only the aspects of community 
government and community organization, but also the com- 
munity of learning, the community of art and letters, the com- 



32 Community and Government 

munity of association and fellowship, and the finer aspects of 
comnmnity life which become the very soul of a democracy, and 
without which the democracy will not exist. 

32. Industry. A neglected institution has been that of in- 
dustry. Work is a law of life and happiness. Work is an es- 
sential to growth and progress. The form and means, therefore, 
which give adequate opportunity for all citizens to work must 
surely be a sanctioned institution of society. This institution 
may be called industry and includes the means of production, 
capital, labor, business, and occupations. Certainly the in- 
stitution of industry is the most comprehensive of all — because 
the mass of democratic citizens partake of its nature and serv- 
ices. Certainly, therefore, conditions of labor and the relations 
between capital and labor are of essential value in citizen study 
of participation in government. Certainly, therefore, the con- 
ditions of child labor and of women in industry are parts of the 
people-citizen's business of government. Certain it is that the 
opportunities for all those who work- — and that should be all 
— constitute an important field of community endeavor and 
offer wide field for service. The promotion of a new respect 
for work and the promotion of a better understanding between 
those who work in detailed tasks and those who employ such 
workers may well become a supreme task of citizen statesman- 
ship. In order to undertake with success such a task, the first 
essential is that the citizen should be well informed as to prin- 
ciples involved and conditions and situations existing. Will 
the contribution of women in citizenship here be commensurate 
with the possibilities that lie ahead? There is no evidence to 
indicate that it will not be. 

33. The church. Out of the turmoil of the war and after- 
war period comes the increasing conviction, the world over, that 
the great need of the world is for appreciation and utilization of 
spiritual values. No matter how wonderful may be the methods 
of social organization or how comprehensive the scope of gov- 
ernment without the spirit of mankind it cannot breathe the 
breath of life. To leave out of consideration the age-long spirit 
of mankind struggling, not through a single generation or in 
a separate domain, but through many generations of men 
throughout the world, struggling in harmony or against the 



Community and Government 33 

harmony of providence — to leave these out is to take away the 
spirit of our democracy. And so the church today finds its 
institutional obligation bigger than ever before and seeks to find 
a greater opportunity. The church, too, finds today its biggest 
opportunity for community service and becomes a part of the 
institutional community — the community of religion. And be- 
cause of its spiritual ministration the church has always found 
womankind chief among its greatest; and because of the new 
citizenship it would seem very probable that the church will 
now find in woman, trained for service and organization, and 
accustomed to social service, a greater enthusiast in the field 
of religious service. An increasing body of discussion and lit- 
erature on the relation of the church to welfare provides ade- 
quate opportunity for serious study. May it not be hoped that 
the spiritual values of life may receive, in this generation and 
on, new momentum and new measure in the life of the people? 
34. Six-fold democracy. Contemplating, from the view- 
points described, the contributions of woman in government to 
the great institutions of society, one comes quickly to view a 
comprehensive democracy based upon this service — a democracy 
which, if it can be established, will stand the storms of ages. 
This democracy would be six-fold, conforming to the several 
aspects of civic service included in the institutional modes of 
life. Around the conception of the home grows up what we 
may call an organic democracy which gives the right to every 
child to be born aright and to become trained in the essentials 
of living and service; which gives the right to every woman of 
the home to have the divine rights of homehood and mother- 
hood untrammeled by vice, injustice and tragedy. What an 
immeasurable field for democracy — organic democracy — which 
will give to every soul the equal opportunity of being born and 
of living, moving and having its being in the midst of God- 
given ideals. Growing up around the institution of the school 
develops the educational democracy which not only provides 
that each child shall have opportunity for an education but for 
that sort of education for which he is best fitted or for which 
he yearns. It would give to the country boys and girls the 
same opportunity for education which city boys and girls enjoy. 
This would be genuine democracy. And, growing up around the 



34 Community and Government 

institution of state is the principle of political democracy upon 
which our government has been based, and upon which now it 
is. entering new domains. This country was founded partly 
on the ideals of religious freedom and democracy; the day is 
not past when emphasis should be placed upon the renewing 
of the ideals of religious democracy. The right to worship ac- 
cording to the dictates of one's conscience should be accom- 
panied by the elimination of faulty aristocracy of church form 
and by the addition of the tenets of Christian service to man- 
kind. 

35. The test of enduring democracy. Of the problems of 
community democracy, or the opportunity for association and 
development of the social personality imhindered by undemo- 
cratic social conventions, one needs but to review the essential 
principles of American ideals in which the youth from any 
walk in life may look forward to all walks in life for which 
he may become worthy. And, of the problems of industrial de- 
mocracy we have come now to the test of our governmental 
organization and service. Shall the form and spirit of democ- 
racy achieve its supreme task of the present time by its victory 
over the difficulties of readjustment as between capital and 
labor? Shall citizens, heretofore uninterested and out of touch 
with the great problems of labor, awaken to its situation ? Shall 
citizens of the labor organizations, hitherto uninterested and 
out of touch with the ways of capital become acquainted with 
its principles and problems? Shall democracy, fair to both 
unreasonable factions, triumph in the institution of industry? 

36. The basis of government. Here then, in the dream 
of comprehensive democracy, is found the simple ideals and 
principles of our government. The old conflict between the two 
sorts of governments has been fought out and won. The one 
theory of government held that the sole excuse for the existence 
of citizens was to serve the state — a super-organization of 
driving power. The other theory held that the state existed 
solely for its institutional power to serve mankind and that it 
has come about because of generations of experience in which 
such organization has proved to be essential for the welfare of 
all the people. The victory of the democratic over the despotic 
form of government has set the standard of our modern govern- 



Community and Government 35 

ment. The basis of statesmanship is found in the measure of 
service to be rendered ; and the basis of citizenship is found in 
the spirit of preparation and service. Government is not some 
formal, objective, far-distant, all-ruling Leviathan which people, 
who ought to be citizens unafraid, look upon with fear or dread, 
or as some great power existing to restrain their liberties and 
energies. On the contrary the government is meant to give 
added freedom and development through adequate protection 
and ample social services. Of course it must have its form, 
and it must constitute vested authority — authority vested in it 
by the citizens themselves. And the perfection of the form of 
government is a challenge to the science of politics, just as the 
efficacy of its authority is a measure of its social force. But the 
final measure of good government will be the measure of good 
citizenship, in which measure the composite goal is the welfare 
of people. Training in the profession of citizenship and service, 
therefore, becomes the reasonable prerequisite to the ballot; 
whereas, on the other hand, the ballot is not infrequently the 
most effective means of bringing about reform, calling atten- 
tion of the public to important policies, and sometimes of creat- 
ing public sentiment. The ballot may therefore be the very 
means of bringing about the measures necessary, not only for 
social welfare, but for the training of citizenship in the essen- 
tials of citizenship. 

yj. Social service. And to this interpretation of the spirit 
of democratic government the citizen will be well in accord 
with public opinion and the currents of usable resources. Per- 
haps there is no tendency in modern times more clearly defined 
and more steadily progressing than that toward social service. 
This means, simply, that in the fields of education, science, 
politics, religion and perhaps in all the major modes of social 
relationships, the fact has been recognized that the highest 
efficiency and the greatest service achieved by the individual 
will be found in service to society and fellowman. In terms of 
moral sanction, it means that they who live unto themselves 
live in vain; in terms of social efficiency it means that the indi- 
vidual who neglects the development of his social nature, or 
who grows rich upon his fellows to their hurt, or who uses the 
public moneys for his own good, is the greatest of social offend- 



36 Community and Government 

ers. This phase of public opinion and social valuation is evi- 
denced on every hand: in the ideals of government as just de- 
scribed ; in the creation of a national welfare conscience ; in the 
instruction of schools, colleges and universities; in the creation 
of schools or departments of public welfare or social service ad- 
ministration in universities like the University of North Caro- 
lina, Harvard and Chicago; and in the increasing body of liter- 
ature, in all forms, giving expression to the ideals and modes 
of social progress. 

38. Justice and opportunity. It should not be surprising, 
however, to those citizens who have kept abreast of the times, to 
learn that such a tendency and impulse in this country has 
made substantial progress. For, of all the ideals that have been 
caught up in the midst of the years, contesting, as it were, with 
the conflicts of generations, with struggles of war and peace, 
and with the varying problems of progress, none appears to 
have survived so consistently, and with each survival to have 
become increasingly dominant, as the passion among men and 
women everywhere for the survival of the right and for freedom 
of development for every individual. The appeal for a square 
deal; for a fair chance for the little child; for the deserved 
success of the young woman struggling for her chance in life; 
for the deliverance of the poor and needy; for the opportunity 
for every individual to develop social personality in the midst 
of a satisfying social relationship. This universal passion for 
the triumph of the right is expressed in our literature and art; 
in our ideals of character and romance ; in the spiritual optimism 
of the people. The hero in the struggle must always win while 
the ' ' villain ' ' must perish from the face of the earth. Our souls 
are fired with righteous indignation at the wrongs of the weak or 
unfortunate and we glory in the triumph of their salvation. In 
the minds and ideals of the people there never is any other 
alternative than that the right and fair should triumph. Why, 
then, in our community life are there so many very real and 
very actual tragedies where the weak and unfortunate lose out 
in the struggle for life and their right? And why are we not 
exercised to remedy conditions which bring about results con- 
trary to all our intellectual conclusions and our spirit- 
ual ideals? Why the pitiful sorrows of maladjusted 



Community and Government 37 

childhood? Why the poverty of women where injustice has 
robbed them of their birthright? Why the stealing of mothers' 
sons and daughters away by the vice and disease of the com- 
munity and the loss of the struggle for right ? Why do we allow 
the heroes and heroines of real life to lose in the struggle whilst 
the villains of wrong conditions or bad individuals survive and 
prosper? The answer to these questions, while seemingly diffi- 
cult, appears on close examination to be very simple. These 
wrongs and these situations have not been crystalized into con- 
crete parts of our creed or platform or active principles of gov- 
ernment. Active citizenship has been a misnomer. But just as 
soon as these fundamental ideals become of a fact incorporated 
into the programs of government and the enacted ideals of an 
active citizenship, then just so soon will progress be made. It 
was so with prohibition and the saloon, for instance. Just as 
soon as the evils of the saloon and its attendant vices and 
crimes became a definite and concrete part of the civic consci- 
ence, then the saloon became an issue in government and lost 
its age-long hold on society. Thus it will be for the other great 
constructive forms of progress in the better forms of citizenship 
and the better enactment of government for the people. 

39. Magnifying public welfare. Here, then, is one of the 
outstanding opportunities to carry forward the practices and 
services of government a step further— to that point where all 
matters of public welfare are assumed in the rights and privi- 
leges of citizenship. Here will come the opportunity to co- 
operate with all departments of government to promote the com- 
mon weal; to co-operate especially with the Department of 
Public Welfare in the prosecution of its programs and in the 
creation of adequate public sentiment. The promotion of social 
service and the training for social work and community leader- 
ship becomes another prospect of civic project. Likewise, mobil- 
izing the community for public health, for community organi- 
zation, for child welfare — these offer an incomparable oppor- 
tunity for immediate tasks of citizenship. There are many other 
specials aspects of civic co-operation and active citizenship in 
which women will contribute genuine progress. They will add 
to the spiritual momentum of civic life; they will contribute to 
the aesthetic ideals of community achievement ; they will change 



38 Community and Government 

the tone of local politics ; they will add momentum to the pres- 
ent rapidly-increasing tendency to provide better school facil- 
ities; they will stand by the state's higher institutions of learn- 
ing, knowing full well the penalty which a state must pay for 
inadequate leadership. They may become, if they will, the 
master builders in the realm of educational statesmanship. 

40. Companions at work. In all of this enlarging outlook 
for women in government there is yet to be stressed a very im- 
portant situation. Woman's study of government and her par- 
ticipation in active citizenship will be companionable with men, 
not separate, isolated, antagonistic. For, never was there greater 
need for harmony and fundamental co-operation than here 
and now ! Never was there a situation in which the two funda- 
mental factors need more to merge their interests and activities. 
For the good of men ; for the good of women ; for the good of the 
cause, team work, side by side as companions for the ages! 
What of those who prophesy the separate ballot boastingly 
hurled at men for the sake of a winning vote, regardless of 
principles involved! What of those whose talk tells of the 
struggle of men and women in the controversies of non-progres- 
sive policies? What of those, whether men or women, who 
would marshal all forces of women for the winning of a cause 
not in accord with the fundamental principles of welfare and 
democratic government? What of those who urge sex loyalty 
and conclude in alliance with sex to eliminate the sex differences 
of citizen and life participation? These will not prevail; but 
rather the fine co-operation of men and women everywhere in 
the pursuit of the common good ; a common citizenship ; a com- 
panionable work; a separate glory of achievement in the devel- 
opment of greater man, greater woman, each magnifying the 
fundamental distinctions of organic heritage enriched by ever- 
increasing progress — these will be the modes of the new citizen- 
ship. 

41. Viewpoints of community needs. In all consideration 
of the pressing problems of the present situation and of the 
issues involved in general civic co-operation there are always 
certain sound and fundamental viewpoints, motives and ob- 
jectives of participation which should give direction to prog- 
ress. In the foregoing and subsequent discussions of the prob- 



Community and Government 39 

lems of womanhood in governmental co-operation, there may 
be assumed : 

1. That the government is really a government of the people 
and that people are citizens and citizens people, but that the 
quality of government is conditioned by the knowledge and co- 
operation of its people citizens. 

2. That no community government can meet community 
needs adequately without civic co-operation. 

3. That the average efficient community government will 
welcome citizen aid and co-operation offered in the spirit of 
constructive citizenship. • 

42. Viewpoint of citizen needs. And that further, on the 
other hand, 

1. The life of the average efficient citizen is not and cannot 
be complete without some knowledge of community needs and 
some participation in community service. 

2. The average efficient citizen welcomes, or should wel- 
come, the opportunity to aid and co-operate with his official gov- 
ernment. 

3. But that knowledge of a community government and 
community needs is absolutely the minimum essential for com- 
munity service ; without such knowledge, neither the fact nor 
spirit of co-operation may become reality. 

43. Viewpoint of woman's part. With reference, there- 
fore, to the problem of woman's participation in government, 
similar considerations constitute a simple basis of premises upon 
which to consider further motives, viewpoints and objectives. 

1. Women are now formally declared citizens with fran- 
chise, and are active participants in both official and voluntary 
forms of citizenship. A privilege brings a concurrent duty; 
a long-looked for opportunity brings a companion obligation. 

2. The woman citizen will, therefore, welcome the oppor- 
tunity to participate in government and will be willing to 
undertake the difficult, as well as the easy, tasks of citizenship, 
and will therefore welcome the opportunity to learn of com- 
munity government and needs. 

3. The woman citizen, further, undoubtedly ' possesses the 
ability and power to contribute certain distinctive qualities and 



40 Community and Government 

actions to government through her mental acumen, her imagi- 
native turn of mind, and her peculiar and instinctive special 
interests in the life of the community. 

44. General motives and objectives. Among the motives, 
therefore, upon which the great body of voters may base 
their immediate work, may be the fulfillment of the condi- 
tions of citizenship and situations involved in the statement 
of assumptions above outlined. The situation is here; it will 
be met; it must be met in normal, progressive and constructive 
ways — is not this the conclusion of the whole matter? 

There may be, however, numerous and commendable view- 
points of different citizens; and different interests and aspects 
of citizenship may appeal to the different individuals. The rich- 
ness of many interests and varying viewpoints will but con- 
tribute to the value of work done and the sureness of success 
to come. These viewpoints may be: 

1. Patriotism, or love of community, with its elements of 
pride and loyalty; the desire to build a more prosperous com- 
munity; the desire to make a better place in which to live; the 
desire to make a stronger unit in the total fabric of state and 
government. 

2. The citizen-stockholder, realizing the responsibility and 
rights involved in the successful management of the greatest 
and most important of all corporations, through business meth- 
ods in government ; economy and efficiency in the expenditure of 
public funds and in the maintenance and promotion of the pub- 
lic welfare. 

3. The social nature, with enthusiasm, vigor and qualities 
capable of serving one's fellow man through the principles and 
practice of vitalized Christianity. 

4. The professional social worker, believing that philan- 
thropy and voluntary efforts of citizens ought to be scientifically 
studied and administered. 

5. The leisure-class citizen, desiring to expend profitably 
for self and community surplus time and money in the promo- 
tion of the public weal. 

6. Respect for government and organized efforts ; respect 
for law and order and for the personality and rights of others. 



Community and Government 41 

7. The scientific study and surveying of the community and 
human interests, insuring adequate knowledge for right action. 

8. The correlation and utilization of all institutions, or- 
ganizations and forces in the community, through intelligent 
co-operation. 

9. Better town-and-city-building for the sake of commer- 
cial growth and expansion and general economic welfare. 

10. The new education for social efficiency; for the teach- 
ing of more civics in the schools ; of developing a better citizen- 
ship adapted ; for giving to the public a comprehensive informa- 
tion. 

11. The larger social ideal, or sociological aim, of develop- 
ing a better social personality; a better social organization; a 
more vitalized democracy ; in fine, one step toward the maximum 
social progress and human welfare. 

45. Types of ofScial sanction. A most significant docu- 
ment, as bearing upon the desire of community government offi- 
cials to have the co-operation of individuals and groups who are 
working for the good of the community, is that reporting the 
resolutions of The International Association of Chiefs of Police 
which was adopted at a recent meeting in which four hundred 
chiefs of police from all over the United States attended. The 
resolutions express the exact type of co-operation and instruc- 
tion in citizenship for which the new era should work. 

Whereas, many universities, colleges, research bureaus and 
voluntary civic organizations are conducting social and health 
surveys and other forms of research with a view to improving 
the moral standards of the peoples, and increasing their effec- 
tiveness as members of their respective communities ; and 

Whereas, such organizations are showing from time to time, 
by means of their investigations, how the communities in which 
they are working may reduce crime in their midst by the cor- 
rection of unfortunate social conditions such as interfere with 
the attainment of a high level of morality and of health and 
are thereby pointing out the ways whereby particular com- 
munities may work to prevent the development of criminals 
in their midst; and 

Whereas, many universities, colleges, research bureaus and 
voluntary civic organizations, on the basis of their investiga- 



42 Community and Government 

tions are building up central bureaus or clearing houses of crim- 
inal records which incorporate criminal histories with other 
data, such as family records maintained for the usual purposes 
of social welfare in the files of various civic bodies ; and 

"Whereas, such bureaus are already of inestimable value to 
criminal courts, police forces and other organizations and indi- 
viduals of constructive vision; therefore be it 

Resolved, First, that the International Association of Chiefs 
of Police, in convention assembled, approve such activities of 
reputable organizations as those referred to in the preamble. 

Second, that the activities of such organizations, insofar as 
they aim to assist in the prevention of crime and to facilitate 
the apprehension of criminals and procedure against them, be 
interpreted by this association as lying within the scope of 
police function. 

Third, that this association urgently requests police chiefs, 
other peace officers and public officials generally in all places 
to co-operate fully with reputable organizations of the sort 
designated in the preamble and to place at their disposal what- 
ever police data may be needed to make the necessary connec- 
tion with such records as are usually to be found in the files 
of organizations for social welfare and thereby to make com- 
plete in one record the full developmental history of individual 
criminals. 

46. The outlook and the will. Typical of active citizen- 
ship the above is also representative of scores of other depart- 
mental requests for assistance that shall be interpreted as lying 
"within the scope" of governmental function. From all parts 
of the nation and in all forms of community and governmental 
co-operation comes increasing evidence of official welcome to 
active citizenship. A new potential is ahead. And with this 
opportunity comes the challenge everywhere to enter into this 
new service with fair and sympathetic attitude toward officials 
and official forms of government; patience, skill, and ma- 
turity in the undertaking of new tasks ; a fair and imper- 
sonal judgment of those who oppose and those who serve the 
common good; and patriotism made vivid and concrete in the 
active service of democracy. 



PART II 

GOVERNMENT AND COMMUNITY PROBLEMS OF TOWN 

AND CITY 

47. The city a complex of opportunities and obligations. 

Social relationships and the obligations of government and so- 
cial service are most clearly defined in the modern city which 
represents at once the most advanced and most complex form 
of civilization the world over. Because of the concentration 
of population; of the predominance of secondary occupations 
and the massing of industry; of the interdependence of the 
population with its ever-increasing relationships; and of the 
other various outgrowth of city life, the social responsibility 
has increased a hundredfold. From these conditions have arisen 
new and larger problems of administration ; of health, safety, 
convenience and education ; together with the manifold prob- 
lems of general social welfare. From these, again have arisen 
increased opportunities for expert service and increased de- 
mands for business government and organization. In the city 
responsibility for the public welfare has taken the form of 
accountability of government and government officials for econ- 
omy and efficiency in the expenditure of public funds, and of 
accountability of private citizens for support in this under- 
taking. By economy we may mean simply the careful, scientific 
and well-planned expenditure of money for the definite pur- 
poses and services for which funds are provided; by efficiency 
we mean primarily the adequate meeting of social needs within 
the prescribed limits of city government in co-operation with 
private support. How true this is and how important to the 
welfare of all the people will appear from an examination of 
the scope of municipal social service. 

48. Two decades of progress in town and city. So great 
has been the progress in better government and municipal social 
services in our towns and cities within the last two decades that 
we have come to look for many of our standards of excellence 
here, rather than to concede that the government of our cities 
is a national disgrace, as was maintained by our foreign critics. 
And yet there is much to be done. Not only in the larger cities, 
but in the smaller cities and towns there is ample obligation to 



44 Community and Government 

magnify the effectiveness of local government. And in the 
building up of new cities and the enlargement of our towns 
a remarkable opportunity awaits the citizenship of the state. 
For the towns will increase in numbers and population and the 
problems of municipal life and government will continue in- 
creasingly complex. What an opportunity, therefore, for the 
best expression of civic interest and for the keenest participation 
in good government in these thousands of towns and cities, rep- 
resentative of our best life and traditions. "What the next two 
decades of progress will bring forth in public welfare in our 
towns will depend largely upon the use which women, with 
clear-eyed vision and well-guided action, make of their new part 
in government. 

49. Information essential for co-operation. From observa- 
tion and study, and from the testimony of those in a position 
to know, it seems fair to assume that the average citizen has 
only a very partial knowledge of the home city and its functions 
and at the same time desires to acquire more information with- 
out the necessity of going exhaustively into a study of city 
government and social conditions. That the citizens should 
keep informed upon such matters is clear from several self- 
evident considerations in order to appreciate the problems and 
responsibilities resting upon the officials chosen ; in order to 
appreciate the problems and responsibilities resting upon the 
private individual ; in order to be able to co-operate intelligently 
with the official government; in order to exercise intelligently 
the rights of publicity toward public acts and officials; and in 
order to guarantee self, or any taxpayer the requisite amount 
of taxes with the maximum amount of economy and efficiency 
in the expenditure of the public funds. No matter what the 
form of government, this is the first essential of progress and 
improvement in social welfare for the city. To apply this in- 
formation by ballot or otherwise to a specific locality is to make 
its value twofold. 

50. The scope of municipal services. The forms of organi- 
zation differ widely in different cities; the service departments 
and divisions are almost as numerous as the cities themselves. 
But the fundamental services of the city to its constituency are 
the same in general for all cities, means for meeting these needs 



Community and Government 45 

varying often according to local conditions. The principal 
municipal services may be classified in the following divisions : 
General administration ; city planning ; public works ; public 
health sanitation and housing inspection; charities; corrections 
and public welfare ; public safety ; public education ; financial 
organization; civic uplift and general social services; private 
services in the municipality ; and services to the rural communi- 
ties adjacent. The story of what is included in each of these 
will be told in a brief outline of principal topics under each 
division the summary of which will give the complete story of 
the city's services. Is it worth while to know of these funda- 
mentals? Will such knowledge offer guide to the effective use 
of citizen inquiry, study and ballot? 

GENERAL ADMINISTRATION AND MANAGEMENT 

51. The scope. That the general administration and gov- 
ernment of a corporation spending thousands and hundreds of 
thousands of dollars is a most important service, requiring great 
responsibility and efficiency, is not infrequently overlooked when 
this corporation happens to be the city government of all the 
people. And yet this is precisely the most particular of all 
chartered corporations for the people. The general administra- 
tion not only means supervising the enactment of all services 
but includes many important special branches. There is the 
legislative branch with clerks therefor; there is the executive 
branch with the mayor, manager, superintendent or other head 
of the government with his executive boards and commissions, 
with the treasurer or chamberlains, and with the solicitors or 
other legal advisors; there is the judicial branch with such 
municipal courts, justice courts or other courts and coroners, 
together with sheriffs and marshals, as do not belong to spe- 
cial departments; and finally the election of officers and the 
upkeep and management of government buildings and properties 
belonging to the people. It is worth something to the admin- 
istration officials to know that the people whom they serve are 
acquainted with the duties being performed. 

52. Methods of co-operation. Citizen inquiry into facts 
and procedure ; citizen expert aid to officials ; vigilance as to 
election and nomination of officers ; citizen advisory service ; 



46 Community and Government 

citizen research and publicity; through bureaus of municipal 
research ; economy and efficiency commissions ; national and local 
municipal leagues ; voters ' leagues ; political clubs ; societies 
for the study and promotion of good government; committees 
of one hundred ; of fifteen ; of seventy, etc. ; academic or scien- 
tific societies; civil service committees or commissions; taxa- 
tion committees; and general accounting or business organiza- 
tions of whatever sort. Exhibits, surveys, publicity, campaigns, 
budget making co-operation. 

53. Projects and questions. Give a brief description of 
your present form of town or city government. 

Compare it with other forms — that is, estimate for your lo- 
cality the relative merits of the commission form, the city man- 
ager plan, or the mayor, council or alderman plan. 

Give a brief account of local political campaigns for the last 
three elections, estimating the proportion of voters at the polls. 

What are the main issues on which the next elections will 
be made? 

Draw up a functional organization chart of the present city 
government. 

FINANCIAL ORGANIZATION AND METHODS 

54. The scope. The financial methods obtaining in the city 
administration may contribute much to the efficiency or ineffi- 
ciency of municipal services. Among the most important of 
these services is that of budget making, in which the program 
of the year is too often marred instead of made. Important 
alongside the budget making is the system of accounting in- 
cluding office accounts, cost accounts, operative records, forms 
of reporting, filing systems, mechanical aid and general facility 
in keeping books for the public. Poor bookkeeping is no more 
justified in the public's business than elsewhere, but rather less 
justified. Important also is the method of financing public im- 
provements; while the method of assessing and collecting rev- 
enue constitute a tremendous task for public services. Nowhere 
more than here is the demand for efficiency and business gov- 
ernment more apparent and urgent. 

55. Forms of co-operation. Citizen interest in budget mak- 
ing — co-operation in making estimates of the needs of the several 



Community and Government 47 

departments of city government — study and inquiry into the 
elimination of wasted or unwise expenditures — expert assist- 
ance by business men and women — use of business methods in 
city government — planning of finances — programs for taxes and 
bond issues — stimulation of official interest in new methods of 
revenue — suitable distribution of licenses — co-operation in in- 
troducing itemized system of expenditures as well as budget — 
watching public service corporation franchises — helping to 
utilize revenue from public utilities — the giving of special gifts 
and endowments. 

56. Projects and questions. What percentage of the total 
expenditure of the city is devoted to each of the principal items 
of municipal service? 

Describe the methods of financing public improvements. 

Describe the methods of budget making and classification of 
expenditures. 

Describe general procedure in office administration of at 
least one department of the city government. 

Make a study of the system of collecting revenue. 

Outline a plan whereby the city may obtain more funds 
with justice to all. 

CITY AND TOWN PLANNING 

57. The scope. The scientific planning for the present and 
future of the city constitutes as much a part of its services as 
do carefully made plans for the success of any business organ- 
ization; and more because it involves the welfare in life, health 
and comfort of many more people than any private organiza- 
tion. Therefore, it is of the utmost importance to plan for 
recreational facilities in parks and playgrounds; for transpor- 
tation facilities in the location and construction of lines and 
terminals; in the direction and expansion of streets; in factory 
facilities with reference to segregation and enlargement; for 
workmen's homes with reference to the welfare of the city and 
the workmen; and for both civic and industrial centers with 
reference to general civic and industrial efficiency. It is not 
enough to allow the city to grow up without recreation ; to 
allow the street car companies to select routes arid the rail- 
road terminals; to allow the proprietors of factories to plan 



48 Community and Government 

only for their own gain; or even for the landlord to ignore the 
rights and wishes of the laboring classes within the city. Plan- 
ning ahead not only brings future efficiency and welfare but pre- 
vents untold waste of time, energy and money with the conse- 
quent ills of maladjustment. It is therefore good business. 

58. Forms of co-operation. Citizens interest and inquiry 
into future needs of the community; preservation of grounds, 
trees and other natural resources ; preservation of spaces and 
avenues for expansion; obtaining properties for reasonable ex- 
penditures; prevention of congestion; extension of roads and 
streets ; promotion of the beautiful ; planning of housing com- 
munities; planning for factory districts; planning for whole- 
sale trades ; perfection of workingmen 's homes. Through muni- 
cipal improvement associations ; city planning committee ; city- 
beautiful leagues ; playground associations ; garden associations ; 
workingmen 's clubs ; women 's municipal leagues ; local organi- 
zations of whatever sort. Surveys, exhibits, conferences, pub- 
licity, co-operation. 

59. Projects and questions. Make a brief report on the 
history of the growth of your town. 

Outline a plan for the next ten years' growth, keeping in 
mind parks, playgrounds, streets, and other essentials as out- 
lined below. 

Make a study of the homes of special groups of working- 
men in the town, with reference to location, conveniences, and 
service rendered. 

Outline a plan for a civic center in the town. 

Describe the factory locations and draw up plans for the 
location of future factories. 

Write the story of a year's recreational progress. 

SANITATION AND HOUSING INSPECTION 

60. The scope. Sanitation is the prevention work looking 
toward health efficiency and includes inspection of congested 
areas, disposal of garbage and sewerage and the general clean- 
liness of the city and includes the sanitary inspection of houses 
and premises and plumbing. The supervision of buildings in- 
cludes the plans of construction and plumbing for both sanita- 
tion and safety, and construction and inspection of buildings 



Community and Government 49 

with reference to fire prevention. Such supervision may also 
include provisions in accord with model building plans and reg- 
ulation in accordance with city planning as already outlined. 

61. Forms of co-operation. Citizen interest in a clean city; 
in the elimination of dirt and filth and ugliness ; the prevention 
of disease ; clean streets ; clean back yards ; clean vacant lots ; 
elimination of the fly and mosquito; better housing conditions; 
better water supply; better drainage. Through housing asso- 
ciations ; visiting associations ; relief associations ; civic clubs ; 
city improvement associations; special days; clean up days; 
exhibits; propaganda; instruction; co-operation with school; 
study and surveys, publicity. 

62. Projects and questions. Which of the above aspects 
of prevention are emphasized by your local government? By 
citizen co-operation? 

Describe "special days" and movements of the last two 
years. 

Who in the town knows of conditions of sanitation in the 
negro sections? 

Write out a plan whereby the authorities may "clean up" 
the entire town. 

Make a study of sanitary conditions in markets, restaurants, 
dairies, and drug stores. 

PUBLIC HEALTH 

63. The scope. The public health department should begin 
with a public health program. The list of public health services 
comprises medical inspection service, to control contagious dis- 
eases ; hospital services ; food inspection service ; meat inspection 
service ; milk inspection services ; infant welfare services ; lab- 
oratory services ; and finally statistical services. Failure to con- 
trol contagious diseases is responsible for a large part of health 
inefficiencies; failure to provide specially for infant welfare 
work in the summer results in the death from preventable causes 
of hundreds of little children ; failure to provide adequate labor- 
atory services cripples service in most of the divisions of health 
work; and a failure to provide statistical services results in the 
city having no standard or record by which to measure its work 
or progress. 



50 Community and Government 

64. Forms of co-operatioii. Citizen interest in a commun- 
ity program to banish disease and build up an enviable health 
record ; better hospital facilities ; fewer contagious diseases ; 
fewer infant deaths; better vital statistics. Through visiting 
nurse associations ; physicians ' clubs ; baby saving campaigns ; 
societies for the prevention of disease ; milk and ice funds ; dis- 
pensary and medical distribution. Campaigns, exhibits, clinics, 
instruction, special days, propaganda, publicity, co-operation. 

65. Projects and questions. Make a study of the record of 
contagious diseases for the last two years, together with the 
methods of medical inspection. 

Describe the activities on behalf of infant welfare. ' 
Make a special study of the birth and death rates of the 
town. 

Outline a plan for complete food inspection services. 
Make a study of the sanitary inspection of houses and prem- 
ises, with recommendations. 

Make a study of the sanitation of congested parts of town. 

PUBLIC CHARITIES, CORRECTIONS, AND WELFARE 

66. The scope. The demands upon the city for charity 
services fall into two general divisions ; those having to do with 
charities within institutions supported by the city, that is, 
indoor relief; and those having to do with charities admin- 
istered in the home of the needy, that is out-door relief. In 
the smaller cities charities are almost entirely outdoor, local or 
county almshouses taking care of the other needs. In connec- 
tion with the charity services which the city may render two 
other aspects are important: the first has to do with relief by 
prevention, through city planning, employment bureaus, insur- 
ance and savings system, juvenile agencies and others; and the 
second has to do with the efficient co-operation with private 
charities and philanthropy, this itself constituting an import- 
ant, in many cases, the principal means of charity work by 
the city. Services relating to corrections are those having to 
do with prisons, penitentiaries and reformatories, together with 
the criminal courts, juvenile courts and other modes of dealing 
with offenders, especially youthful offenders. Than the problem 



Community and Government 51 

of corrections there is perhaps no single service to be rendered 
of more far-reaching significance. 

67. Forms of co-operation. Citizen interest in a normal 
population; the elimination and helping of defectives, depend- 
ents and delinquents; relief for the needy; prevention of vice 
and crime; correction for the curable; welfare for the people. 
Through associated charities ; homes and hospitals ; juvenile cor- 
rective and protective associations ; big brother movements ; 
clubs for boys and girls; work and help for the aged; visiting 
associations ; juvenile courts ; and literally hundreds of methods 
of charity. Contributions; supervision; visiting; following up 
work ; study ; earnestness ; direction. 

68. Projects and questions. Make a statistical study of the 
number of cases assisted by the city through indoor or insti- 
tutional relief. 

Describe the system of giving outdoor relief and the co- 
operation of city with private charity. 

Outline a practical plan for an employment bureau operated 
by town or city. 

Make a careful study of one or more prisons, reformatories, 
or penitentiaries in the community. 

Write the story of a year's juvenile delinquency. 

PUBLIC SAFETY 

69. The scope. The public safety of the city is commonly 
considered under the two heads, the services being classified into 
police protection and fire protection. The police department 
has varied obligations to perform, including its own efficient 
organization and control, the training and equipment of officers 
and recruits and effective rules and regulations governing safety 
service. It has in addition to the vigilance for criminal offenders 
the regulation and control of street traffic, transportation and 
the use of streets ; the special assignment of the control of 
vice, and efficient methods for the detection of harmful forces 
through secret and other investigations. The police depart- 
ments in American cities have been specially subservient to 
politics and graft, in which they have retarded the progress of 
cities. The fire department has not only to perform its duty 
of fire fighting, through which it must have an efficient organiza- 



52 . Community and Government 

tion and administration, but it must also take special steps to- 
ward fire prevention. Through this latter service a new effi- 
ciency awaits the redirected fire forces. 

70. Forms of co-operation. Citizen interest in making the 
community a good place in which to live; elimination of crime 
and vice ; elimination of bad influences ; elimination of unneces- 
sary loss by fire ; safety first and always. Through police com- 
missions; societies for the prevention of vice; societies for pro- 
tection of family; prison commissions; societies for protection 
of children ; safety-first societies ; fire prevention societies. 
Study; propaganda; publicity; punishment; co-operation. 

71. Projects and questions. Describe the system of police 
protection in your town. 

Make a statistical study of the number and causes of arrests 
for one year. 

Describe the methods employed in dealing with vice, with 
a view to making criticisms. 

Make a special study of all cases of unwarranted arrests or 
of unnecessary fines and imprisonment. 

Make a study of the loss by fire for the last year and the 
methods of fire-fighting. 

Outline a plan of propaganda for fire prevention in the city. 

PUBLIC WORKS AND UTILITIES 

72. The scope. Under the division of public works are the 
highways with their construction, inspection and maintenance; 
with the cleaning and sweeping of streets and the accompanying 
organization and management of labor ; and finally with the dis- 
position of sweepings and street garbage and other waste. Next 
are sewers, with the construction and maintenance and the dis- 
posal of sewerage, and of course the organization and manage- 
ment of labor. Next are the public utilities, such as the publicly- 
owned water and light plants, with their construction and 
maintenance and all public buildings or other property. With- 
in the field of public works the American city in the past has 
been in many cases noted for its inefficiency and waste ; and no 
field perhaps would repay a careful study more than this. 

73. Forms of co-operation. Citizen interest and aid 
in establishing adequate and satisfactory communication; 



Community and Government 53 

transportation; public utilities; elimination of waste and 
graft; economy for the public satisfactions and com- 
forts; efficiency in public service. Through good roads 
committees; good roads days; street improvement asso- 
ciations; national highway commissions; engineering societies; 
building associations; citizens inquiry committees; co-operative 
work-together societies; other organizations of whatever sort. 
Surveys, exhibits, demonstrations, publicity, conferences, spe- 
cial days, co-operation. 

74. Projects and questions. Draw a map showing the 
principal streets of the town. 

Make a study of the condition of all, or parts of city high- 
ways. 

Describe the organization and procedure of the street clean- 
ing force in the town. 

Make a study of the sanitation of the city as found in the 
maintenance and construction of sewers. 

Outline the most sanitary and economical methods for the 
disposal of sewerage. 

Outline a plan for the public ownership of light, water and 
gas plants. 

PUBLIC RECREATION 

75. The scope. Recreation has well been called the physi- 
cal basis of social organization, and yet most communities pay 
little special attention to organized recreation. The large cities 
are notable exceptions, recognizing public recreation as a funda- 
mental aspect of city government. A proper recreational sys- 
tem will provide for parks, large and small; for playgrounds 
and organized play; for the perfection of the school play sys- 
tem; for social centers; and for the supervision of all public 
recreational places. 

76. Forms of co-operation. Citizen interest and help in 
making a wholesome and joyous community; utilization of 
leisure time; directed play; helpful amusements; physical and 
mental welfare; a better race of citizens. Through recreation 
committees; playground associations; story tellers' league; dra- 
matic associations ; social center committees ; music and festival 
associations; park commissions. Through play> drama; page- 



54 Community and Government 

antry; garden and play ground exhibits; social centers; festi- 
vals, lecture centers ; organized recreation. 

77. Projects and questions. Make a study of forms of re- 
creation in the community. 

Draw a city plan for small parks and play spaces. 

Make a survey of the community with reference to vacant 
lots and their use for gardens and playgrounds. 

Outline a practical play for the improvement of the school 
playgrounds. 

Make a study of the theaters and other amusement places. 

Show the evils of inadequate or improper recreation. 

PUBLIC EDUCATION 

78. The scope. Public education in this classification is 
largely the public schools and would seem to be self-explanatory. 
And yet the services to be rendered by the public schools, with 
the accompanying complex problems of administration, are far 
greater than any practical conception ordinarily held by the 
citizen. These services include the efficient organization and 
administration of the school system both from without and 
within; the problem of selecting efficient teachers without the 
rule of politics ; the problem of equipment of teachers ; the jtrob- 
lem of selecting a practical curriculum with varied courses of 
study; the problem of grading and classification of school child- 
ren; the problems of retardation and the problem of special 
schools, night schools, vocational schools, co-operative schools, 
schools for defectives and all thers ; the problem of the health of 
the child with adequate medical inspection; the problem of the 
general school hygiene, including the buildings and grounds, the 
heating and lighting, ventilating and seating, sanitation and 
comf ortffi the large problem of recreation and playgrounds ; the 
problem of the wider use of the school house for social services 
to the community; the problem of citizen and patron co-opera- 
tion; and with all these and many others, comes the specific 
problems of utilizing moneys, the supply department itself con- 
stituting a considerable business; and the efficiency of all these 
services will depend largely upon the great problem of selecting 
and organizing the board of education, this having constituted 
for many years the greatest of administration problems. "What 
a tremendous field for citizen co-operation and civic service! 



Community and Government 55 

79. Forms of co-operation. Citizen interest in the schools; 
co-operation with teachers and boards ; improvement of the 
school plant; efficiency in correlating school and home; im- 
provement of school sentiment; larger opportunities for school 
work; better attendance. Through home and school leagues 
public education associations ; parent-teacher associations 
school visitors ; kindergartens ; medical inspection visitors 
school garden associations; pedagogical associations. Visiting 
study; contributions; school lunches; exhibits; co-operation. 

80. Projects and questions. Describe the organization of 
the school system, including courses of study and methods of 
teaching; or select a single school for study. 

Make a study of the heating, lighting and ventilating of 
school buildings. 

Outline a practical plan for better vocational education in 
the public schools. 

Make a statistical study of age and grade distribution of 
all children in the schools and show amount of retardation. 

Make a study of the need of medical inspection of school 
children. 

Describe the uses of the school building during the year 
for other purposes than teaching; or outline a plan for the 
''wider use of school plant." 

MISCELLANEOUS SERVICE 

81. The scope. More and more the modern city is recog- 
nizing its general obligation to perform as many social services, 
other than the technical and mechanical duties of city govern- 
ment, as possible consistent with circumstances. Among these 
services are the public libraries and reading rooms; the civic 
centers; the supervision of weights and measures; the organiza- 
tion and administration of the city markets ; the inspection of 
food supplies; civil service and pension services to employees; 
and many other similar efforts. That there will be found a 
means and an avenue for increased efficiency and social service 
in these civic efforts cannot be doubted. And yet with all the 
formal and organized services of the city, complete efficiency 
is not possible without the thorough co-ordination of official 



56 Community and Government 

with private services. Co-operation with the churches ; with the 
hospitals; with the charities; with the women's clubs; with all 
civic clubs ; with private educational institutions or public in- 
stitutions other than city; with chambers of commerce or other 
booster organizations; and with all other private resources. 
Civic education and civic consciousness are synonymous with 
these efforts which are in turn co-ordinate with formal municipal 
services. 

82. Projects and questions. Describe the public libraries 
of the city, and make a study of its services to the people. 

Show by a detailed study the need for weights and measures 
supervision. 

Make a study of the possibilities for a municipal market. 

Outline a plan for civil service and pension provisions for 
city employees. 

Enumerate, with details of plans, other methods whereby 
the city officially may serve the mass of its people. 

Describe the services of one or more churches to the welfare 
of the city. 

Make a study of the influences of one or more private edu- 
cational institutions. 

Describe the work of the Women's Clubs of the town. 

Make a study of the work of the local chamber of commerce 
or other such organization over a period of two or three years. 

Outline a plan for a citizens' organization for effecting 
municipal efficiency. 

SERVICES TO THE RURAL COMMUNITY 

83. The scope. But the city must not only be city-building 
within its own domain, but country-serving in its services to- 
ward the surrounding communities upon whom it depends for 
support and expansion. This is true both for its own perpet- 
uity and welfare and it is also true from the higher obligations 
of social service to society. In this capacity the city can aid 
in more or less degree and in varying ways, the rural districts 
by increasing efficiency in farming; in merchandise and ex- 
change ; in transportation ; in communication ; in rural finance ; 
in better co-operation and organization; in health and sanita- 
tion; in adding to the social satisfactions of country life; in 



Community and Government 57 

aiding tlie rural church; the rural school; in general civic edu- 
cation and publicity; in promoting the welfare of country 
womanhood ; the country home and family ; the beautification of 
the country; in the recognition of rural leadership and rural 
values; in building up communities and in promoting co-opera- 
tion with governmental functions. How the farm demonstrator, 
the educational leader, the road expert and many others sent 
by the city have made over the rural districts is now matter for 
record. That every city must consider this aspect of its services 
is synonymous with the assertion that every city wishes to grow 
and to provide efficient services for its people. No greater op- 
portunity has been overlooked than this. 

For modes of civic co-operation and for projects of work to 
be done as well as questions to be answered see the following 
chapter. Meantime, to what extent can the city or town com- 
munity include in its services provisions for a rest room for 
country women who must spend long hours in town ? Or co- 
operation in a county fair? or the provisions for comfort sta- 
tions, or municipal sheds or garages, or markets, or roads, or 
credits? or the recognition of rural leadership in the county? 



PART III 

GOVERNMENT AND COMMUNITY PROBLEMS OF 
COUNTY, VILLAGE, AND OPEN COUNTRY 

84. Two aspects. In the study of and participation in the 
problems of the comity and open countryside two viewpoints 
may be emphasized: the one is that of the government of the 
county, with its difficult tasks of finance and administration; 
the other is the great problem of the development of the rural 
life of the state, contribution to the social satisfactions of the 
dwellers outside the towns and cities, and the proper recognition 
of their part and parcel in the state's affairs. It is doubtful if 
two more urgent needs for co-operative citizenship can be found 
than these two aspects of the public welfare. If only the fran- 
chise for women will bring them into closer contact with these 
problems with an adequate knowledge of their import and a 
willingness to share the responsibility, there will be developed 
shortly a new era in the annals of North Carolina progress. 
There is no greater challenge to the new and constructive ven- 
tures in government. 

85. County government. Poor county, we say, of which 
we expect so much and for which we do so little ! All the people 
live in counties ! We deal justice or injustice from the counties ; 
we marry and give in marriage in the counties ; our properties 
are taxed in the counties, and we pay three times the amount 
for county as for state tax; our roads are built and not built, 
maintained and not maintained from the county seat ; our county 
schools are good or bad as per the county schedule; our health 
problems and problems of welfare center in the county. "We 
really have a county spirit or county conscience, in general, 
and we have developed distinguishing characteristics from 
county to county. And yet, with all this and more, county gov- 
ernment, as Doctor Branson says, is without ideals. County 
officials have no guide or manuals or budgetary forms of pro- 
cedure. And however eager and earnest and honest they are, 
they must grope in the dark with difficult tasks and burdens 
of government beyond their powers. There is not only little 
knowledge of county affairs and little uniformity in the scores 
of details of governmental administration of local comity affairs, 



Community and Government 59 

but many, many of the citizens disdain to show an interest in 
county problems and county government. "Witness the attitude 
of many men and women toward county officials and their as- 
sumption that "conditions are about as good as might be ex- 
pected." Why not give to these officials the sympathetic sup- 
port which they need? Why not give them means for govern- 
ment and require the effective utilization of these means? Why 
cripple the largest portion of all our local affairs and progress 
by lack of system, support and directions? Why this utter 
negligence of the county government by good citizens? Why 
has this branch of government failed more largely than any other 
in performing the tasks of public service with appropriate 
economy and efficiency ? Why ? Well, just because ! 

86. The scope. The scope of governmental activity in the 
county is large and its roster of officials a comprehensive one. 
Judge Gilbert Stephenson estimates that in addition to the 
deputies in the office of the clerk of courts, the sheriff and reg- 
ister of deeds, and in addition to the constables and justices of 
the peace who are township officials within the county, and 
allowing three members only to each of the boards of election, 
education and county commissioners, there are thirty standard 
officials in the county of North Carolina. These are : 

Clerk of the superior court, sheriff, register of deeds, coroner, 
treasurer, surveyor, superintendent of health, superintendent 
of schools, superintendent of county home, superintendent of 
reformatory or house of correction, superintendent of public 
welfare, board of education, board of commissioners, board of 
elections, highway commission, auditor, judge clerk, and solici- 
tor of county court, county attorney, farm demonstrator, stand- 
ard keeper. 

The duties of these officials are more numerous than the av- 
erage citizen comprehends. For instance, one official, the 
clerk of the superior court, has assigned to him by legislation 
thirty-two separate and distinct records to be kept and there are 
listed seventy-five different items of service for which he must 
charge a fee. He is judge, probationer, advisor, file clerk, and 
the general utility official of all the counties. Likewise the 
duties of the register of deeds and the sheriff are many, com- 
plicated and not infrequently confusing and expensive. Many 



60 Community and Government 

of the officials are elected by the people who really do not know 
in detail the duties which they are to perform or the distribu- 
tion of cost and labor among the several officials. Elected by the 
people are clerk of the superior court, sheriff, coroner, treasurer, 
register of deeds, surveyor, and commissioners. 

The scope of county government includes, in general, the 
same services demanded of the municipality, but in different 
forms and proportions. The finances and financial administra- 
tion is important and neglected; the country schools have been 
called the greatest disproportion of our civilization ; then there 
are the services involved in public health and sanitation ; public 
safety and protection; public justice and the courts; public 
property records and protection; public roads and commimica- 
tion; public charities and welfare; prisons and reform; home 
and farm demonstration work. The same obligation rests upon 
the citizen to participate in government and to improve the 
services of the county to its constituency. 

87. Projects and questions. Work out, in the detail method 
illustrated in the previous chapter on city government and 
problems, the scope and forms of citizen co-operation for each 
of the county services enumerated above. 

Make a complete functional statement of all duties of all 
officers in your county. 

"Work out a program for the improvement of all services in 
the county, in harmony with the best co-operation with present 
officials. 

Make a study of the financial administration of the present 
county organization : fees ; salaries ; office accounting ; tax lists ; 
budgets ; classified expenditures. 

Provide for systematic interest and support of county offi- 
cials in the performance of their difficult duties; provide plans 
for the increase of support for public service. 

Describe the county institutions for relief, for childrens' 
welfare, for the feeble-minded, epileptic and insane. 

Give the history of road and bridge building in the county 
for the last five years ; describe the present status of roads and 
prospects for the future. 



Community and Government 61 

Give one meeting over to the discussion of the University 
of North Carolina Bulletin, "COUNTY GOVERNMENT AND 
COUNTY AFFAIRS", edited by Dr. Branson. 

At the time of writing this Bulletin there has just come from 
census reports the statement that in one of our states (Missouri) 
out of sixty-one counties for which complete returns are available 
fifty-three, or more than 85% showed a decrease in population 
and the remainder an increase. Some of the decrease was as 
large as 19%. The fifty-three counties with decreases were ru- 
ral counties. The others were counties of large cities ! 

Work out the meaning for this tendency in the number of 
counties of the 3,000 and more in this country and see what it 
means to the nation. Is the following section of this manual, 
under these circumstances, not worthy of careful study? 

To what extent is the citizenship of the county acquainted 
with the services of the state department of agriculture, the 
State A. and E. College, and the University department of 
rural social science and the division of county home comforts? 

THE PROBLEMS OF COUNTRY LIFE 

88. City and country. In the foregoing discussions and 
outlines relative to county government, less space and detailed 
suggestions are given, not because less important but for two 
other reasons: The first is that the method of study and out- 
lines illustrated in Part I for towns and cities is equally ap- 
plicable here, and that standard services of health, education, 
recreation and the like are the same in general everywhere. It 
will only be necessary, therefore, for the more comprehensive 
study of the county government to make similar classifications, 
studies, and projects for each of the county activities, within 
the special limitations outlined for the county. While the prob- 
lems of the town and city seem more easily approachable similar 
problems of the county can be studied; one of the greatest pos- 
sible services that the citizen can perform here would be to 
bring to the same status of knowledge and efficiency the matters 
of county government as are now prevailing in the best of towns 
and cities. What club will be the first to enter this field of con- 
structive citizenship? 



62 Community and Government 

The other reason for the limitation of treatment is found 
in the fact that much of the best citizen effort and constructive 
government measures must arise from the careful consideration 
of country life problems in terms of needs and difficulties rather 
than in terms of government. This is equally true for the 
national government in its wide efforts to help country life and 
in the conservation of resources and assistance to the farm 
man and farm woman. It is generally agreed that permanent 
stability and progress in the nation must depend to a large 
extent upon prosperity, progress and welfare in the open coun- 
try of America. The prosperity of the city, with its secondary 
occupations is dependent upon the country with its primary 
occupations; the city, therefore, owes something of service to 
the country and a section was included in the outlines of muni- 
cipal social services to indicate that a municipality must not 
only be "city-building" but ''country-serving" as well. All 
these facts of importance are admitted but their significance 
as well as the solution of the difficulties involved, like county 
government, are assumed. 

89. The scope and treatment. Concrete, but comprehen- 
sive, problems of country life may be the basis of the conviction 
"the rural community a bulwark of national power." A 
close study of the several divisions of the subject and a compari- 
son of actual conditions in the country with ideals in each di- 
vision will reveal something of the citizen task ahead. The 
twenty divisions may be roughly classified into three general 
groups with prevailing emphasis on economic, social and organ- 
ization aspects. In the first group are the business of farming, 
marketing and buying, transportation and good roads, com- 
munication and accessibility, finance for the farmer, business 
organization and co-operation, in each of which division the 
country districts in North Carolina are backward. The second 
group pertains more largely to social and. institutional aspects 
of country life and includes health and sanitation, social satis- 
factions, the rural church, the rural school, civic efforts and adult 
education, publicity and newspapers, country womanhood, the 
country home and family. The third group pertains more near- 
ly to the aspects of individuality, leadership and organization 
in the country and includes the subjects of rural aesthetics, 



Community and Government 63 

rural values, the development and recognition of rural leader- 
ship, community growth and expansion, and co-operation with 
government. If we examine the graphical illustration it will be 
seen that the rural community has its first base in the actual 
economic business of farming and that it has its final or essential 
basis in government. The climax of the community, however, 
is in the three social institutions, the home, the school and the 
church, with the most general emphasis upon the school. In 
all these aspects, inseparably related to each other and to the 
welfare of the people, it may readily be seen that it would 
profit us little to gain for our counties and countryside all the 
prosperity of the outlined possibilities and to lose in the end 
final adjustment in government and public welfare. 

90. Projects and questions. After the manner of the pre- 
vious studies, take each subject listed above and describe in 
detail its scope of problem and opportunity and its possibilities 
of projects. 

Can the rural districts ever develop with all the possibilities 
of a state and county government's maximum services until 
good roads make accessibility at all times a common fact ? Why 
then are good roads neglected? 

Plan a meeting in which the group will attempt to determine 
just what is the "country-life" problem in your county, and 
what steps can be taken toward co-operation between town and 
country. 

Draw up a plan for a town market in which both the workers 
of the town and the workers of the country will benefit, and 
in which both the homes of the country and the homes of the 
town will reduce the cost of living. 

Work out, with small committees and with the aid of in- 
terested farmers and merchants, some plans for improving the 
tenant system in the county and yet one that will appeal at 
once as economically sound. 

Analyze the present federal loan system for farmers and 
suggest plans whereby the farmers of the county may get to- 
gether on such a plan more frequently than at present. 

Make a study of the county records of mortgages, loans and 
of the laws relating to all matters of finance as it affects the 
farmer and his family. 



64' Community and GtOvernment 

Describe at least one co-operative association in whicli farm- 
ers and townspeople come together and in which county officials 
may become interested. 

Present to a group of bankers and other business men some 
practical plans of extending credits to farmers through live 
stock and other securities. 

Interest the county officials and others in providing for a 
county farm demonstrator and a county home demonstration 
agent for the improvement of home and farm conditions. 

Describe the routine day's work of a score of women on the 
farm. 

Classify all governmental assistance that may be had by the 
farmer and his family in the every-day life and labor on the 
farm. 

Write the story of the difficulties in the last five years that 
have been in the way of government officials in the promotion 
of health, the prevention of disease, the promotion of better 
farming and home life, the promotion of public welfare, the 
eradication of disease of cattle and all other co-operative efforts. 



PART IV 

GOVERNMENT AND PUBLIC SERVICE OF THE STATE 

91. State problems. The technical government of the state 
as expressed through its legislative, executive and judicial 
branches has been described and assigned for study in Dean 
Carroll's former ''STUDIES IN CITIZENSHIP FOR 
WOMEN". Important facts involved in the franchise in North 
Carolina are given at the end of this part of the bulletin. There 
remain to consider, as in the case of local government, the prob- 
lems of general service to the people and the departmental means 
of rendering such service. Of course the state is made up of 
the elements of county, city, town, village and open country 
whose problems of governmental service have been sketched in 
the foregoing pages. But, outside the powers of national gov- 
ernment, the state is vested with certain fundamental larger 
functions relating to the principal services to be rendered its 
citizens. It retains certain larger powers and assigns units 
of these powers to counties and cities, at the same time retain- 
ing many of the privileges of oversight and supervision. Be- 
sides, therefore, the same human interests that have been de- 
scribed in specific departments of city, town and county, the 
state is sovereign in determining policies of education, health, 
public welfare, finances, industrial relations, and others. 

There are those who have affirmed that the Old North State 
combines perhaps more of the total conditions essential to the 
development of the ideals of after-war American democracy 
than any other state in the union. Such a statement comes not 
only from within the state but from those conversant with na- 
tional tendencies and possibilities outside the state. The history 
and composition of the population ; the growth and distribu- 
tion of wealth ; the nature of its industries ; its relations between 
labor and capital ; its town and country life ; its prevailing in- 
stitutions ; its difficult problems ; its promise of achievement ; its 
successful experiments; its freedom of spirit and allegiance to 
principles; its forms of government — all these are appropriate 
for the merging of the best American traditions with the quest 
of the future goals. But whether this be true or not, the citizens 



66 Community and Government 

of North Carolina owe it not only to the state itself, but espe- 
cially to the nation, to approximate within her borders the near- 
est possible approach to the democracy of the future. And yet, 
for the most part, it is difficult to find among citizens the keen 
interest and realization of the bigness of the present moment or 
the adequate knowledge of the essential progressive steps which 
the state has been making, of the difficulties now involved. 
With her new and advanced legislation in public welfare, public 
health, public education, as well as other aspects of public serv- 
ice, there is needed a revitalizing of citizen interest and citizen 
knowledge of and citizen support of the needs of government 
now striving to develop the human and physical resources of 
the state. There is needed also a keen interest in, a knowledge 
of and an opposition to such backward tendencies on the part 
of citizenship as may develop — as are always developing. Here 
is challenge unparalleled for the woman citizen to join in bring- 
ing about the achievement of great results in the domain of 
North Carolina democracy. This is to achieve records in state 
government worthy of the ideals of the republican form of 
government under which we live. 

92. The scope. The citizen ideal of government would in- 
clude a federated plan of state public service in which all de- 
partments and officials co-operated to the fullest extent under 
provisions made possible by a liberal legislature, the executive 
concurring and leading, and the judicial branch upholding. The 
legislature and other elected officers should be elected in ac- 
cordance with their ideals, knowledge and support of the com- 
mon good as expressed in the fundamentals of the state govern- 
ment. Such a federated service in North Carolina, as at pres- 
ent organized, will include : 

The governor of the state, the superintendent of public in- 
struction, the secretary of the state board of health, the com- 
missioner of public welfare, the commisssioner of agriculture, 
the commissioner of labor and printing, the commissioner of in- 
surance, the secretary of the North Carolina Historical Com- 
mission, the chairman of the state highway commission, the 
secretary of the North Carolina Library Commission. 

In addition to these and the legislative and judicial offi- 
cers, there are further, in the departments of general public 



Community and Government 67 

service, the chairman of the state fisheries commission, the chair- 
man of the state board of elections, the superintendent of the 
state prison, the state highway engineer, the state librarian, 
the director of the state laboratory of hygiene, the state geolo- 
gist, the adjutant general, and others of allied interests and 
separate bureaus under the direction of the principal officials 
above listed. 

93. Federated public service. It is anticipated that the 
Old North State will forge ahead in its public services and that 
a plan for a state federation of public service in which the gov- 
ernor is so much interested will be forthcoming at an early 
date. The greater project of a federated service of all citi- 
zens working together to elect and support efficient officials com- 
mitted to progress and the public good is an even more laudable 
ambition. Certainly woman's part in government can find here 
a rich field of endeavor. 

94. Projects. In the following pages four departments of 
the state's public service are sketched with outline and sug- 
gestions. Select from among the remaining departments, listed 
below, one or more in which special interest is manifested or 
special service can be rendered, and outline its functions and 
organization. 

The department of agriculture, department of labor and 
printing, department of insurance, North Carolina historical 
commission, legislative reference library, state library of North 
Carolina, library commission of North Carolina, North Carolina 
geological and economic survey, state highway commission, fish- 
eries commission board, state board of elections, fireman's relief 
fluid, Audobon Society of North Carolina, state educational 
commission, commission of revision of laws, board of internal 
improvement. North Carolina national guard, state standard 
keeper. 

In Part V make special study, through the dramatization 
plans, of the executive, legislative and judicial departments. 

Draw up a functional organization chart of the entire state 
public service, accompany this with a functional statement of 
duties of each state officer. 



68 Community and Government 

PUBLIC FINANCE AND BUSINESS 

95. The scope. What greater tribute to the importance and 
high motives of those who provide the public finance has been 
found than the spectacle of a great nation aroused to fight for 
the principles which should result in victory for democratic 
forms of government — and yet, a nation that found its first es- 
sential to be a matter of public finance? "What greater tribute 
to the efficacy of finance in great causes than the measure and 
speed of the victory won? The great campaigns of raising the 
public funds for the public good will always remain an epoch- 
making chapter in the history of the nation. And yet one of 
the greatest results of the entire projects of raising moneys for 
the prosecution of the war was the training in citizenship which 
came to America. Especially was the training in method and 
procedure notable in respect to the great body of American 
women citizens who stood by and carried on with poise, zeal 
and effective results. Financial emergencies during the war 
and the late pre-war period also developed the power of the 
government to serve its people through means of financial assist- 
ance, through sound methods of financing, extension of aid to 
sections of the country, and the provision for reserve checks 
upon the nation's resources. Here again was a matter of gov- 
ernment functioning through finances for the common good and 
for the training of citizens in newer opportunities of govern- 
ment. 

The principle involved in the financing of the greatest 
project of the nation is but typical of the problems and oppor- 
tunities of the state to finance its own programs of technical 
government and public service. Public finances, in which the 
average citizen is so little interested except to complain of taxes, 
is after all the problem of the way in which a state obtains and 
expends its very subsistence. It is a very matter of fact truth 
that the state must have money to perform its function; and 
that its functions consist in serving its citizenship through for- 
mal governmental efforts. How strange, therefore, that citizens 
should assume that such matters of government will automati- 
cally take care of themselves ! How strange that citizens should 
complain of an annual expenditure of less than three dollars a 
year for the total benefits of state government returned to them 



Community and Government 69 

in services of health, protection, education, public welfare, con- 
veniences, advanced property values, all for a total cost of 
what is expended momentarily for a trifle in everyday pleasure- 
life ! The explanation is a simple one : the citizens have not 
thought it out and have not participated in their opportunities 
as citizens. 

96. Forms of co-operation. Perhaps the best forms of cit- 
izen co-operation that can be named is a study of North Carolina 
facts of finance in relation to the services rendered by the 
state. The following tabulations were made by Doctor E. C. 
Branson, head of the department of rural social science at the 
University of North Carolina. North Carolina, according to 
Dr. Branson's compilation from the U. S. census report on sta- 
tistics of states is next to the last of all states in the amount 
per capita that is expended for government. This amount is 
$2.54. The amounts of other states go as high as $19.25 while 
the average is $6.05 per capita. The details of expenditure are 
as follows: 

1. Schools and libraries $ .75 

2. Charities, hospitals, and corrections 51 

3. Old soldiers' pensions, printing, etc 27 

4. Outlays for schools, hospitals, etc .20 

5. State administration costs 18 

6. Conserving natural resources, mainly agriculture 18 

7. Interest on bonded and floating debt 18 

8. Health and sanitation 10 

9. Protection of person and property 09 

10. Highways 08 



Total $2.54 

But what of the state's income? Where does it obtain this 
money and what are the methods of raising the public funds? 
The receipts for 1919 are listed as follows: 

1. General property taxes $2,653,609 

2. General department earnings 1,212,349 

3. Business taxes 1,040,796 

(1) On the business of insurance companies 
and other corporations $ 491,799 



70 Community and Goveenment 

(2) On individual incomes 120,012 

(3) Automobile licenses 427,545 

(4) Hunting and fishing 1,440 

4. Special property taxes 527,449 

(1) Inheritance taxes 400,866 

(2) Corporation stock taxes 126,583 

5. Sale of bonds, warrants, etc 591,451 

6. Occupation and privilege taxes, B and C schedules 456,053 

7. Sale of supplies and investments 448,699 

(1) Supplies $ 322,793 

(2) Public trust funds for state 

uses 125,906 

8. Interest and rent 339,354 

(1) On investments and invest- 

ment funds 248,012 

(2) On deposits 34,598 

(3) Public trust funds 51,806 

(4) Rents 4,938 

9. Federal grants 197,236 

(1) For education $ 86,465 

(2) For Experiment Station, 

Farm Extension, etc 110,771 

10. Donations 74,175 

11. Other special revenues 55,358 

Incorporation or organization tax- 
es, stock transfers, etc. 

12. Poll taxes 42,404 

13. Fines, forfeits, and escheats 14,535 

Grand total $7,653,468 

97. Projects and questions. Compare the per capita cost 
of state government in North Carolina with that of the other 
states in the Union. 

Compare the amounts spent for the special purposes with 
similar amounts spent by other states. 

Distribute the $1.00 spent in state government according to 
the purposes for which expended. 



Community and Government 71 

Compare tine wealth of North Carolina with other states of 
the Union. 

Compare the ideals of citizenship and history of the Old 
North State with any other states. 

Plan methods of showing the taxpayer that practically all 
of his taxes come back to him in direct services rendered; and 
of showing the legislator or prospective legislator that his obli- 
gation is to render more faithful, not less faithful, services to 
his people. 

Analyze the salient features of the revaluation act and point 
out its future values to those who are responsible for public 
finance. 

Make a special study of the current report of the North 
Carolina corporation commission. 

PUBLIC CHARITIES AND WELFARE 

98. The scope. The North Carolina system of social legis- 
lation has been pronounced somewhat in advance of any in the 
nation in some respects. It is typical of the living, throbbing 
tendencies of the day to bring about the public welfare by the 
services of a democratic form of government having in mind 
services to all the people. Like all aspects of government, how- 
ever, it must needs have support and co-operation. Citizenship, 
co-operation and patriotism are needed all the more in these 
ventures which blaze the trail toward new goals of achievement 
in public welfare. The particular organization through which 
governmental welfare is administered is the Board of Chari- 
ties and Public Welfare. Its administrative officer is a COM- 
MISSIONER OF PUBLIC WELFARE whose department has 
also a BUREAU OF CHILD WELFARE, with its director, 
and a BUREAU OF COUNTY ORGANIZATION with its di- 
rector. In the counties the organization, as already suggested 
in county government, consists of a county superintendent of 
public welfare, with such assistance as the county may desig- 
nate. The county superintendent of public welfare works with 
the county superintendent of schools. The functions of the de- 
partment of charities and public welfare are many: to main- 
tain its offices for the execution of its legislated tasks; to pro- 
mote public welfare through study, research, publicity, and 



72 Community and Government 

official duties; to assist and direct counties in their organization 
of public welfare and to supervise their work; to inspect and 
supervise the work of state eleemosynary institutions; to assist 
in enforcing the compulsory school attendance law; to advise 
concerning the disbursement of poor funds ; to promote the 
welfare of persons in prison and those discharged; to prevent 
and correct dependency, delinquency, and defectives in the 
state; to supervise probation work in the state; to promote 
wholesome recreation; to bring about the enforcement of all 
public welfare laws ; to supervise and advise with the executive 
secretary of the child welfare commission; to co-operate with 
national, state and county agencies for the promotion of the 
public good. Working closely with the commissioner of public 
welfare is the university school of public welfare with its pro- 
grams for training in social work, teaching citizenship in class 
and out; community assistance, and research and publication. 
99. Forms of co-operation. Perhaps nowhere can there be 
found more suitable opportunity for the participation by 
women in the matters of the common weal than in their co- 
operation with all forms of technical public welfare. Here 
are the problems of child welfare, with its myriad appeals to 
womanhood; here are the problems of the family and the home, 
both the development of the normal home and the readjustment 
of the unfortunate homes; here are the avenues of approach to 
the problems of morality, dependency, delinquency and the de- 
fective citizen and child; here are the problems of the alms 
houses, the childrens ' homes, the institution for aged and infirm ; 
for the feebleminded and unfortunate in life Here, too, is the 
basis of furthering the profession, full of promise in the enrich- 
ment of woman's professional life, of social work and com- 
munity leadership. What has become a profession typical of 
the best efforts of the woman worker is reinforced by the op- 
portunities to serve in public and community capacity through 
the modes of governmental authorization. The forms of co- 
operation are many: citizen interest and inquiry into the 
facts; instruction in the needs of public welfare; the spreading 
of information and sentiment in favor of the maximum service ; 
inspection of work done in the town and county; studies of 
actual conditions ; studies of what ought and can be done ; com- 



Community and Government 73 

nmnieation with comity boards of commissioners; with legis- 
lators; support of the state department and co-operation with 
its programs ; bringing philanthropy to supplement the public 
funds ; co-operating with private and voluntary agencies ; seek- 
ing efficient officials and workers believing in the common good 
as expressed in the ideals of this democracy. 

100. Projects and questions. Confer at once with the 
county superintendent of public welfare in the county and 
learn of his work and plans. 

Offer to co-operate, and to bring others to co-operate with 
the county superintendent of public welfare and his workers. 

Contribute to the feeling of "well done" on the part of 
commissioners who have made possible the organization of the 
welfare work in the county. 

Make a study of all cases of dependency, and poverty in the 
community — in the county — at the present time. 

Make a study of the cases of child misfortune and irregular- 
ity now in the community or county. 

Write the story of the treatment of the aged and infirm 
within the last two years. 

Survey the total efforts for child welfare and for recreation 
in the community. 

Become acquainted with the state and county institutions 
for helping the unfortunates in the democracy. 

Sketch on an outline map of the state the counties which 
have the several public institutions, with locations of each. 

Describe the organization and resources of the state's public 
institutions for public relief. 

Direct effective interest and support to some one or more 
of the state's institutions mentioned below: 

FOR CHILD WELFARE— Jackson Training School at 
Concord, for delinquent white boys ; Samarcand Manor, at Sam- 
arcand, for delinquent white girls; Caswell Training School, at 
Kinston, for mentally defective white children ; School for the 
Deaf, at Morganton, for white children ; School for the Blind, at 
Raleigh, for white children; School for the Blind and Deaf, at 
Raleigh, for colored children. 

Do you know that there are no county child-caring institu- 
tions in the state? 



74 Community and Government 

The Children's Home Society of North Carolina, at Greens- 
boro, is the child-placing agency in the state. 

The Institution for Crippled Children, an orthopaedic hos- 
pital is being constructed at Gastonia. 

There are nineteen orphans' homes in the state: at Char- 
lotte, Thomasville, Elon College, Asheville, Falcon, Raleigh, 
Winston-Salem, High Point, Balfour, Crescent, Goldsboro, Ox- 
ford, Barium Springs, Clayton, Nazareth, Belmont. Some of 
these, Raleigh, Charlotte, and Asheville, have more than one, in- 
cluding the white and colored. 

FOR MENTAL DEFECTIVES— State Hospital at Raleigh; 
State Hospital for the Dangerous Insane, at Raleigh; State 
Hospital, at Morganton; State Hospital, at Goldsboro; Caswell 
Training School, at Kinston. 

There are six private hospitals for the treatment of nervous 
and mental cases : at Greensboro, Morganton, Asheville, Char- 
lotte, the last two having more than one. 

There is no institution provided by the state for the idiotic 
and feebleminded. 

FOR DELINQUENTS— Two reform schools as listed above; 
the state prison at Raleigh — penitentiary; county chain gangs 
and county prisons, local lock-ups and prisons ; probation courts 
and procedure. 

Make a study of the prison labor laws and study the state 
standards of administration. 

FOR THE CARE OF THE POOR: Compare county in- 
stitutions with needs and standards and with other institutions 
lik the home for the aged and infirm at Greensboro, or the 
Masonic and Eastern Star Home. 

PUBLIC HEALTH 

101. The scope. Citizens of North Carolina know of their 
state board of health and the state health officer through the 
unusually effective work that has been done and is being done, 
through the national reputation which is being achieved, and 
through the general opinion that the health of the state is being 
well provided for. What most citizens do not know is the de- 
tailed organization of an efficient board and its administration; 
the wide and diversified scope of its services ; and the difficulties 



Community and Government 75 

involved in the execution of so large a project of state govern- 
mental services. Perhaps the average citizen does not know the 
extent to which the state health officer as the executive and sec- 
retary of the board must co-operate with local state and national 
agencies, or the need for citizen co-operation in all the tasks of 
public health. The North Carolina board of health, consisting 
of nine members, of whom five are appointed by the governor 
and four elected by the North Carolina state medical society, 
emphasizes three fundamental values : the stability of organi- 
zation and permanency of policies ; the partnership of state with 
citizens in the medical profession; and the non-political char- 
acter of its personnel. This gives an ideal avenue for citizen 
co-operation in the promotion of all means for the conservation 
of human life and the promotion of the health of the people. 
The administrative organization is as follows : A bureau of 
county health work ; a bureau of vital statistics ; a bureau of 
medical inspection of schools ; a bureau of infant hygiene and 
public health nursing; a bureau of venereal diseases; a bureau 
of tuberculosis; a bureau of epidermiology ; a bureau of engi- 
neering and inspection; a state laboratory of hygiene, 

102. Forms of co-operation. In these divisions of the work 
the citizen will find varied functions: To interest county au- 
thorities in health matters and advise and assist in the working 
out of their problems ; to secure certificates for every birth and 
death and to keep accurate records; to interest school author- 
ities in the health of children and to assist in medical examina- 
tion and treatment of defectives; to save babies by the thou- 
sands ; and to educate mothers ; to examine water supplies, blood 
and disease specimens, and to manufacture and distribute vac- 
cine and antitoxin ; to bring about a better understanding of 
sex hygiene and reduce venereal diseases ; to manage the state 
sanitarium and to stimulate all efforts toward the prevention 
of tuberculosis ; to secure reports of all contagious diseases and 
to control epidemics ; to offer inspections services in the matter 
of sanitation and health conditions in public buildings ; to pro- 
mote in every way possible the health of the people and to 
conserve human life; to co-operate with and supervise the work 
of counties whose officers are a health officer-, a quarantine 
officer, a county health nurse. 



76 Community and Government 

Citizen interest and enthusiasm in plans for county health 
officers and nurses ; co-operation in the making out of accurate 
birth and death statistics and helping others to do the same; 
co-operative and personal services in the examination of child- 
ren and in the treatment of remediable defects; child wel- 
fare exhibits; community instruction to mothers and coming 
mothers; the holding of baby-saving days or weeks; the pro- 
motion of sanitation; the encouragement of ordinance pre- 
venting contagious diseases from spreading ; inspection of water 
and milk supplies; to plan the elimination of immoral condi- 
tions and to co-operate in the teaching of sex hygiene; co- 
operation with representatives of the state board wherever pos- 
sible; to the giving of publicity to health propaganda. Ex- 
hibits, lectures, visits, instruction, study, co-operation. 

103. Projects and questions. Sketch on an outline map of 
the state the counties with county health officers ; county nurses. 

Describe the health program in the county and adjacent 
counties. 

Give the death rate for the county, by causes, for the last 
five-year period. 

Work out plans for a complete county health program, in- 
cluding nurses, hospital, health officer. 

Classify the deaths of children under five years of age, in 
the county, according to preventable or non-preventable causes. 

Compile health and sanitation ordinances applying to local 
counties. 

Compare the administrative organization of the North Caro- 
lina board of health with other states. 

Arrange for frequent meetings and other publicity for 
health work. 

Enumerate the principal hospitals in the state. How many 
counties provide hospital facilities? 

PUBLIC EDUCATION 

104. The scope. The action of the recent special session 
of the legislature in granting every request made by the super- 
intendent of public instruction has called attention concretely 
to the enlarged program of public instruction in the state. It 
shows further the effectiveness of citizen co-operation in gov- 



Community and Government 77 

eminent relating to the public schools and the efficiency with 
which the program was worked out and presented to the law 
makers. The results of this new program will go far toward 
putting North Carolina in the forefront of educational programs 
if the citizens will become informed, maintain a constant inter- 
est and intelligent information, and choose efficient county 
school officials. The state department of public instruction is 
ready and able to contribute a program of educational states- 
manship if it can have citizen co-operation in its programs of 
state development. 

The state department maintains the following services : 
Superintendence and direction of public instruction; supervi- 
sion of teacher-training; inspection of high schools; inspection 
of rural schools; direction and inspection of vocational schools 
direction and maintenance of community recreation service; 
direction and maintenance of adult illiteracy teaching; super- 
vision of construction of school houses; the tabulation of sta- 
tistics and issuing of reports and publicity. 

The functions of such a department are self-evident from 
the classification of services. It is the purpose of the depart- 
ment, with its several divisions, besides the special functions, 
to promote in every way possible higher standards of instruc- 
tion; to suggest suitable school taxes and co-operate in obtain- 
ing them; to co-operate in the enforcement of the school attend- 
ance law; to co-operate with the superintendents of public wel- 
fare; to co-operate with home and farm demonstration service; 
to co-operate in the incorporation of rural communities; to pro- 
mote suitable legislation for school welfare; to issue licenses 
to teachers, fix standards of preparation, and fix scales of 
salaries. 

105. Forms of co-operation. Of special importance in the 
citizen's work are the state institutions of higher learning, a 
list of which is given below for further study. 

Perhaps nowhere will woman's part in government be more 
effective than in the development and maintenance of stand- 
ards of excellence in school matters. There are the same modes 
of co-operation described in the chapter on local problems. But 
there is need for citizen co-operation in the state program ; citi- 
zen interest in equal opportunity for all boys and girls; co- 



78 Community and Government 

operation in the compulsory attendance law enforcement; inter- 
est in the election of good officials; participation as members 
of school boards ; co-operation in the training of teachers ; crea- 
tion of interest in better school houses; school meetings; school 
fairs ; school exhibits ; conferences ; special interest and co-opera- 
tion in the work of the state's institutions of higher learning. 

106. Projects and questions. Sketch a map of the state 
showing counties having community recreation service; illiter- 
acy work. 

Classify counties according to their high school facilities. 

Classify counties according to the per capita amount spent 
for public schools. 

Describe the organization of the community service bureau. 

Describe the organization of the adult illiteracy work. 

Describe the new system of teachers' salaries according to 
professional preparation. 

Compare the negro schools with the white, in equipment, 
location, maintenance, teachers, attendance. 

Inquire into the needs and present organization of the state 
educational institutions: The University of North Carolina, 
Chapel Hill; the North Carolina State Vollege for Women, 
Greensboro; the East Carolina Teachers' Training School, 
Greenville; the North Carolina A. & E. College, Raleigh; the 
Cullowhee Normal School, CuUowhee; the Agricultural and 
Training School, Greensboro; the Negro State Normal Schools 
at Elizabeth City, Fayetteville, and Winston-Salem ; the Indian 
Normal School. 

THE BUSINESS OF VOTING IN NORTH CAROLINA 

107. Voting essential. After the citizen — whether the young 
citizen just becoming of age, or the woman citizen ushered into 
the new privileges and obligations of citizenship, or whether 
the man of years of civic illiteracy and negligence — has mas- 
tered the underlying principles and facts which enable the right 
use of the ballot, there is still left the actual process and fact 
of voting. And voting is necessary. It ought to be considered 
the highest of privileges and duties. The "citizen" who boasts 
of aloofness from politics and government is boasting of tm- 
reality because her government is all about her in the forms of 



Community and Government 79 

freedom and protection and public services. What sort of logic 
is it that causes a citizen to say: "Behold, my government 
and its politics, in which reside the sovereign power to render 
me all services which I need and want, are so bad and furnish 
me with so few of my due services, that I shall therefore have 
nothing to do with them in order that they may become worse 
and furnish me with still less of the services which I so much 
need and desire." If politics is wrong, to stay out is to turn 
over to those who make it wrong the power to make it worse; 
if right, to stay out is to magnify selfish individualism and the 
shirking of a fair share of responsibility; for politics is the sci- 
ence of government! Do women stay out of politics because 
other women, whose standards they do not consider sufficiently 
high to partake of government, enter ? Then they agree to turn 
over their politics and government to just those whom they 
feel incapable of government. Surely, with the franchise comes 
both the challenge to become rounded in the fundamentals of 
citizenship and to exercise the ballot in the promotion of better 
government. 

108. Special act. In order to facilitate the registration and 
voting of women in the next elections the special session of the 
North Carolina General Assembly in the summer of 1920 passed 
a special act. This act is given here for quick reference and 
to introduce the basis for November voting at the polls. 

The General Assembly of North Carolina do enact: 

Section 1. That the word "male" in line two of section 
five thousand nine hundred and thirty-seven of the Consolidated 
Statutes of North Carolina be stricken out. 

Sec. 2. That sections five thousand nine hundred and forty- 
one and five thousand nine hundred and forty-two of the Con- 
solidated Statutes of North Carolina shall not apply to women. 

Sec. 3. That nothing in any of the laws of North Carolina 
shall be so construed as to prevent the registration and voting 
of women twenty-one years of age and having the other qualifi- 
cations for registration and voting as provided for men for the 
year one thousand and nine hundred and twenty. 

Sec. 4. That for the purpose of the registration and voting 
of women, the residence of a married woman living with her 
husband shall be where her husband resides, and of a woman 



80 Community and Government 

living separate and apart from her husband or where for any 
reason her husband has no legal residence in this state, then the 
residence of such woman shall be where she actually resides. 

Sec. 5. That this act shall apply to all primaries and elec- 
tions. 

Sec. 6. That this act shall be in force and effect from and 
after the legal ratification of the Nineteenth Amendment to the 
Constitution of the United States: Provided, however, that 
this act shall be inoperative in the event the court of last re- 
sort shall declare said ratification illegal. 

Ratified this the 26th day of August, A. D. 1920. 

109. The basis of suffrage. For official information and in- 
struction concerning the elections inquiry should be made of the 
county board of elections, or the state board of elections at 
Raleigh, who are charged with the matter of facilitating all 
election machinery and instructing the voters as well. Inquiry 
may also be made of local officials or friends whose special in- 
terests and situations enable them to devote time to co-operat- 
ing in the matter of preparation for voting. 

110. Women voters. For the purpose, however, of begin- 
ning the process of further study of this aspect of citizenship 
and to continue the method of active study, it will be well to 
introduce here the elementary basis of voting in this state. From 
the act quoted above it will be seen that the way is made easy 
and clear for the woman voter. Section 5941 and 5942 refer 
to the requirements for the payment of a poll tax and for the 
exhibition of the receipt for such tax before voting. This re- 
quirement is eliminated in the case of women voters. It will 
be seen further that all other conditions and qualifications pre- 
vail as apply to male voters except that the woman voter need 
not state the exact age upon which she bases her right to vote 
but may return her age as twenty-one years or over. 

There need not be described in detail any matters relative 
to the voting for electors for the president and vice-president 
for the reason that those who are qualified to vote the state 
ticket may also vote for national officials. Likewise, qualifica- 
tions for the general elections make eligible for voting for spe- 
cial measures, bonds, amendments. See the general election 
law for details. 



Community and Government 81 

111. Dates. The date fixed for the general election of local 
state and national officers is the same : The first Tuesday after 
the first Monday in November, At the same time congress- 
men, members of the general assembly and township officers are 
elected. For state and national elections the time is fixed for 
the above-mentioned date every four years. For county officers, 
congressmen and township officers elections are held on the same 
day of the month but every two years. Special election for 
vacancies in the general assembly may be held at such time 
as the governor may appoint. Justices of the supreme court and 
judges of the superior court are elected for eight years. 

112. Place. The place of voting is fixed by the county 
board of elections. Each voter must vote in her own precinct, 
ward or township, and any change in place must be designated 
by the county board at least twenty days before election. At 
each precinct, ward or township polling place the registrar shall 
attend in person each Saturday during the period of registra- 
tion of voters. 

113. Qiialifications. The qualifications of voters require: 
naturalization, residence in North Carolina for two years, in 
county for six months, and in precinct, ward or election district 
for four months; 21 years of age or over; ability to read and 
write; sound mind; without criminal record of felony, 

114. Registration. But only such persons as are registered 
are entitled to vote. The time and method of registration are 
provided in the requirement that the registration books be 
open at least twenty days continuously prior to the date of clos- 
ing registration which is sunset on the second Saturday before 
each election. On each Saturday of this period the registrar 
must be at the polling place with his registration books. All 
registration shall be during this time, except that a person who 
has become qu;alified for voting subsequent to the closing of the 
registration books may register on election day, 

115. Polls. The polls are open from sunrise to sunset of 
each election day and no longer. Ballot boxes are provided for 
each class of officers to be voted for, that is, state officers; 
the justices of the supreme court, judges of the superior courts. 
United States senators ; members of congress ; presidential elec- 
tors ; solicitors and county officials ; and officers of the town- 
ship ; a separate ballot for each of which classes must be used. 



82 Community and Government 

116. Candidates. For whom does the citizen vote? Pres- 
idential and vice-presidential electors and United States sena- 
tors and congressmen ; state officers : governor, lieutenant- 
governor, secretary of state, auditor, treasurer, superintendent 
of public instruction, attorney-general, and other state four- 
years officers; justices of the supreme court and judges of the 
superior court; congressmen and members of the general as- 
sembly from the several districts and counties ; county officials : 
register of deeds, county surveyor, coroner, sheriff, treasurer 
and county commissioners, if elected and other county officers, 
and for clerks of the superior court and solicitors ; for con- 
stables and justices of the peace in such townships as elect these 
officers by the vote of the people. 

117. Primary. There is also a general primary election 
the date of which is the first Saturday in June next preced- 
ing each general election in November as outlined above. The 
purpose of this election is to vote on candidates of each political 
party. In this primary also may be voted preference for candi- 
dates for president and vice-president of the United States. 
Such primaries are normally governed by the general election 
laws. Numerous safeguards and official forms are prescribed, 
all of which are given in the North Carolina election law. 

118. Penalties. The normal mode of citizenship assumes 
the utmost uprightness and honor in all matters of voting. 
Clean government is the ideal of citizenship and safeguards 
are placed around the methods of conducting elections. As in 
other matters of government, however, there are penalties for 
the violation of these standards, and these penalties are pro- 
tection to the good voter and promote citizen liberty. Punish- 
ment for misdemeanor will be prescribed for the failure to 
perform duty as elector, to interfere with elections or officers, 
to disturb election officers in the performance of their duties, 
to bet on elections, to intimidate or oppress voters, to make cam- 
paign contributions, to publish unsigned derogatory matter 
against candidates, to circulate false charges against candidates ; 
likewise the penalty of a felony will be enforced for registering 
in more than one precinct or for impersonating other voters, for 
buying or selling votes, for making false entries, for swearing 



Community and Government 83 

falsely, for false qualification. Other offenses may arise, such 
as voting of unqualified persons at elections, false oaths, wilful 
failure of official to do his duty, making false returns, using 
corporate funds for political purposes, and the like. 

119. Projects. In all these important matters the citizen 
will recognize the form and substance of democratic govern- 
ment. What will make this government better? What would 
make it worse ? What are the long-run penalties of a community 
or state or nation whose citizens are not active citizens? What 
are the supreme duties of the citizen-voter 1 Is it all of su^rage 
to vote or all of citizenship to learn? Why is this a govern- 
ment by parties ? What is the boss system and how eliminate it ? 

Why not devote an early meeting of the group to the careful 
consideration of the North Carolina election law, this being 
Chapel 97 of the Consolidated Statutes? It is fascinating read- 
ing and the basis of constructive knowledge. 

Why not take a "census," on the one hand of the members 
of the group, and on the other, of the prospective candidates, to 
ascertain what proportion of the candidates are known or have 
made clear their positions with reference to the greater funda- 
mentals of service for which they ask votes? 



PART V 

THE REAL PROBLEMS OP AMERICANIZATION 

120. Qualities of American government. In an address de- 
livered before the Daughters of the American Revolution, Presi- 
dent Wilson expressed the feeling of joy that "we belong to a 
country in which the whole business of government is so diffi- 
cult." Our government is "a universal communication o£ 
conviction, the most subtle, delicate and difficult of processes" 
in which, however, there is not to be found a single opinion that 
is not of some consequence to the grand total; "to be in the 
great co-operative effort is the most stimulating thing in the 
world." These points of emphasis — the difficulty, the stimu- 
lating qualities, the companionable efforts — are all the more 
applicable in these days of new parts in the great co-operative 
effort of democracy. The present tasks of citizenship, which, 
after all, are the real tasks of Americanization, challenge the 
American woman to her contributions of new forces to the con- 
stant creation of the ideals of America. There is, too, another 
quality, constantly emphasized in the previous pages of this 
manual, which is necessary to the achievement of genuine Amer- 
icanization. Here, again, the expression of President Wilson 
gives true emphasis : ' ' For it seems to me, ' ' he says, ' ' that the 
peculiarity of patriotism in America is that it is not a mere 
sentiment. It is an active principle of conduct." 

121. The spirit of American institutions. The spirit of 
Americanization is the spirit of America in its truest ideals. This 
spirit must be within us, interpreted and enacted in the prin- 
ciples of citizenship and service, before it can be transferred 
to new-coming citizens. The expensive paid worker who tells 
the foreign-born unfortunate that he should be thankful for 
whatever condition he finds in America, forsooth because it is 
better than the old world at that, does not express the ideals 
of American citizenship. Nor does the native citizen, affirming, 
in matters of justice and right as it relates to the negro popu- 
lation, that the negro should be satisfied because conditions are 
better than in Africa or in slavery, express the ideals and spirit 
of North Carolina or the nation. America and the states with 
their freedom of rights and their spirit of democratic liberty 



Community and Government 85 

were founded on principles of right and justice interpreted and 
enacted in conformity to governmental services that will render 
the largest good to the largest number, striving for approxima- 
tion, in the end, to perfect service to all. It is clear, therefore, 
to quote Dean Edwin Greenlaw in his introduction to "OUR 
HERITAGE ' ', that ' ' the future of America depends not merely 
on our continuing to observe the forms laid down by the 
Constitution — the succession of political campaigns and elec- 
tions, the exercise of the right to suffrage; not merely on as- 
sertion of Americanism and loyalty to our institutions, but also 
upon the degree to which we keep burning in the hearts of the 
people the ideals of which our institutions of government are 
but the outward symbol, so that these institutions are created 
anew by each generation as it plays its part in America's life." 
122. Citizenship a test of Americanism. One could almost 
hope for an era in which only those people whose qualifications 
for the above ideals would enable them to express their part in 
government through the ballot; and that thereby all people 
would come to qualify for the expression of the true American 
spirit ; and that conditions would be so prepared that all citizens 
could avail themselves of the opportunities of citizenship based 
upon the true qualifications; and that, furthermore, civic illit- 
eracy among us all, the elimination of which is one of our most 
real Americanization problems, would be a decreasing propor- 
tion among us, even as educational illiteracy is now. Here, then, 
is a national problem : To interpret and re-interpret the spirit 
of the real America and her institutions ; to prepare citizens, 
young and old, in this interpretation; to insure a situation in 
which knowledge of institutions and government becomes the 
prerequisite for citizenship. It is one of the fascinating out- 
looks of the present time that woman's obligations to become 
active citizens will enable her to enter her tremendous powers 
and forces in the national problems of interpreting and per- 
fecting citizenship on the basis of service and information. Here 
will be force and example to stimulate all citizens alike to this 
Americanization problem. Is it, then, a supreme problem of 
Americanization to see that the woman voter carries the nation 
a step further in the original American ideals? Would that 
some such power and influence would bring to the great polit- 



86 Community and Government 

ical parties and their platforms clearer enunciation and enact- 
ment of these principles. And who but citizens may bring about 
a realization of this kind. 

123. Limited meaning. For the present purpose, therefore, 
Americanization in North Carolina studies in citizenship will 
be considered entirely exclusive of the conventional meaning of 
training foreign-born citizens into American ideals. This is 
of the utmost importance and the efforts and successes in this 
direction constitute and will continue to constitute memorable 
chapters in the nation. But for the purposes of this manual our 
problems of Americanization are the problems of making our- 
selves 100 per cent citizens, of training the youth of the com- 
ing generation in these ideals, and of adapting in civic justice 
the negro natives who constitute a large proportion of our 
population. There are, to be sure, many aspects of these prob- 
lems. And these aspects should be interpreted concretely as 
tasks of definite active citizenship, as nearly as possible. But 
the prevailing ideal is that of training ourselves and others in 
the qualities of citizenship required by the needs of city, county, 
town, village, rural community, state, nation, as outlined by the 
best civic leadership, 

124. The political parties. If the new citizen, searching 
after the best national service, wishes to learn new truths and 
perform new services, a wide field of study and effort is available. 
She will not only concern herself with the presidential and vice- 
presidential electors; with the study of the forms of the Con- 
stitution through which the president, vice-president, the legis- 
lative body, the judicial body are chosen and function. She 
will do this and more. She will study the party system and 
become grounded in the history and fundamentals of the parties 
and of the problems that have been attacked through the party 
system, rather than through individual or personal effort single- 
handed. She will do this and more. She will, following the 
ideals set forth in the preceding chapters on city, county and 
state government, search out the fundamental medium of serv- 
ice through which the national government ministers to its citi- 
zens and perfects them in the ways of better citizenship. The 
national government, too, is a part of us all, round about us 
with its power of might to render the right effective, and with 



Community and Government 87 

its increasing possibilities for directing and rendering social 
service to its citizens through co-operation with the units of local 
government. What are the fundamental divisions of the nation- 
al service? How do they function? Do they function ade- 
quately through well-organized departments and divisions? 
Are there enough departments to meet the needs of the govern- 
ment today with its growing visions of social and economic serv- 
ice? Do the political parties, in the attempt to build great con- 
structive platforms, recognize the importance of the national de- 
partments and the careful selection of cabinet members? Will 
they select candidates who will select members of the cabinet 
for their special fitness to interpret and render the due services 
to the nation rather than for their political influence alonel 
The great political conventions, potent with the capacity to 
become American institutions of unlimited creative force, are 
but the representatives of the people — the citizens. Do, then, 
the citizens control these conventions, guaranteeing that they 
will express the will and choice of the people in their selections ? 
It is not enough to affirm that the people may reject the candi- 
dates of the convention choice if such candidate is not of their 
liking; the people must vote for their nominees. Shall not one 
of the new ideals of American citizenship be, therefore, the 
magnifying, by the conventions, of service to the people through 
the entire governmental organization? 

125. National service. Most of the larger problems of na- 
tional and international affairs — those that affect us today with 
such power for good or evil — must be directed through the chan- 
nels of departments of national government. War, adjustment of 
capital and labor, taxation, immigration, ideals of justice, and 
others, administered in accordance with the ideals of democracy 
will send America far on her way to the perfection of her 
ideals and far away from the ideals of any sort of bolshevism 
of anti- American doctrines. But the people-citizens must keep 
in close touch with the promotion and enactment of these ideals. 
Americanization in this sense of the word will mean the per- 
fection of our knowledge and citizenship as they function 
through the great departments of national service that now 
exist and perhaps others that are to be established in the near 
future. What are the divisions of labor in the national service 



88 Community and Government 

as distributed among the ten great departments : The secre- 
tary of state, secretary of the treasury, secretary of war, sec- 
retary of the navy, the postmaster general, secretary of the 
interior, secretary of agriculture, secretary of commerce, and 
secretary of labor? In all these will be found the technical 
avenues through which governmental organization extends to 
the citizen the protection and promotion of rights and welfare. 
In proportion as a government advances through its formal 
administration of government for political purposes to the 
larger ideals of political and social service there will be con- 
stantly-growing needs of enriching or enlarging the departments 
of national service. 

126. Cabinet Members. What of the tasks of political and 
social science in the fields of the public health and public edu- 
cation ? Is education, representing one of the most fundamental 
of all institutions, simply one of the many '' left-overs " of gov- 
ernmental service? Rather is it not fundamentally connected, 
not only with the necessary services to the peoples, but also with 
the very promotion of a self -perpetuating citizenship? Is the 
public health simply a part of war? Shall we wait always for 
war and famine and pestilence to extend the service of health 
protection and promotion to the people? We have gloried in 
the nation's quick grasp of its opportunities to serve its citizens 
in their economic difficulties in agriculture and commerce and 
labor. Are health and education less able to offer testimony to 
the nation's greatness in meeting the technical social needs of 
its citizens? Of course we value the children of the nation 
more than we do its farm animals, but are we not mistaken in 
assuming that the science of government can provide services 
for the one and not for the other? 

127. Support of institutions. In all these larger interests 
of governmental social services, however, the form of organiza- 
tion to promote the service ought to be understood and appreci- 
ated by the informed citizenship. It is doubtful if there is any 
aspect of the national government less studied and appreciated 
than the details of these departments of administration. They 
must have, in order to become more efficient, the intelligent inter- 
est and backing of the people. After all the sentiment and intelli- 
gence and action of the citizen must determine the quality and 



Community and Government 89 

scope of the government's services. There is, then, here a great 
and hopeful problem of vital Americanization work : to create, 
foster, and nourish in the people the ideals of co-operative serv- 
ice by the government to the fundamental institutional needs 
of the nation. The scope and form of governmental services 
would be determined by the careful interpretation of the needs 
of the fundamental institutions upon which America has been 
founded — the institutions through which the individual may de- 
velop its highest types of liberty and social personality, and at 
the same time promote the welfare of the nation and society. 
It is the spirit of America to foster and promote American 
ideals of institutional life and progress. The government is 
based upon these ideals and is set to the task of executing the 
will of the people as they interpret their ideals. What, then, is 
the will and wish of the people? 

128. '* Un-American" tendencies. In reference, for instance, 
to the home, is it the spirit of America to make difficult the paths 
of little children? Is it the essence of American institutions 
to make the very spirit of American cities — and cities must con- 
tinue to grow and become an increasingly larger proportion of 
the population — hostile to the coming and growing of little 
children? Is it the carefully interpreted judgment of America 
that she should build large units of living situations in which 
certainly one of the outstanding commands is ' ' Suffer not little 
children to come unto me for of such is not the kingdom of 
cities." Is the policy of the American citizen one which pro- 
claims for child welfare in a thousand meetings and programs, 
yet continues the building of a society which neither welcomes 
children into the family nor permits them to live in pleasant 
places? Was the advertisement, inserted in the newspaper by a 
mother, desperate and tearful: "Wanted — To exchange one 
beautiful blue-eyed little child, for one small dog of any variety. 
I am permitted to keep the dog but not the child" — was the 
condition which prompted this the spirit of American ideals? 
Is it the spirit of American ideals to glorify those socially 
selfish, economically selfish women of cities, whose scorn for the 
personal presence of little children in their own city environ- 
ment is a prevailing characteristic — is it the spirit of American 
ideals to glory in their fierce denunciation of the liberty-loving, 



90 Community and Government 

sincere and genuine fathers and mothers of men in the rural 
districts whose limited experience allows them to do harm to 
their little children in wrong hours and tasks of work? Rather, 
ought we not through good citizenship enlarge the experience 
and knowledge of all fathers and mothers and magnify child 
welfare in city and county, the nation over ! These are questions 
not for formal government to answer but for the spirit of Amer- 
ican citizenship to interpret. 

129. Citizenship and Labor. Looking back over the history 
of the founding of the American colonies, tracing the develop- 
ment of its growing civilization and institutions, interpreting the 
days and years of its pioneer experience and the motives and 
spirit of freedom which dominated the founding and developing 
of this country ; and linking these and all other facts available 
with the terms and conditions of progress, what is the American 
spirit in its interpretations of relations between capital and la- 
bor ? Is it the American ideal that the chief outstanding fact in 
the troubles of labor and capital is the fact of misunderstanding 
and lack of sympathetic relations between laborers and those 
who employ? Is it the spirit of America that conditions should 
be allowed to come to that pass where those who do not under- 
stand, never have understood and do not care to understand 
American ideals must come and interpret to us doctrines un- 
American, and prevail? Is not the problem of Americanization 
of our men of wealth and our workers of days a supreme task? 
What would it not mean if the great mass of American people, 
both wealthy and worker could but realize the danger of for- 
getting the rights of labor and the human factor in industry 
on the one hand, and the rights and fundamental social and 
economic importance of capital on the other? What would it 
not mean in these days of tendency toward wrong ideals of 
idleness or of false gain through oppression and unsound meth- 
ods, if we could again realize in the spirit of the old America 
that WORK is a law of life and industry, one of our most fun- 
damental institutions! Is this a matter solely for formal gov- 
ernment or is it a matter of intelligent, informed, patriotic 
Americanized citizenship? Will remedies come through force 
or will they come through the patriotic and informed participa- 
of all citizenship in the common problems? 



Community and Government 91 

130. Social problems of Americanism. There are other sim- 
ilar problems relating to these and to other fundamental institu- 
tions. There are general problems of the national ideals and 
specific problems of state citizenship. They are all vitally 
connected with problems of government and with the difficulties 
of Americanizing immigrants as well. The challenge is for the 
participation of woman in active government to bring about an 
increasingly nearer consummation of the ideals and organization 
of American democracy what time she performs the tasks of 
local citizenship and service. Some of these tasks are in North 
Carolina with specific challenge. Civic illiteracy has been men- 
tioned, educational illiteracy is another. The problem of devel- 
oping rural conditions to the point where the country home and 
community will again be typical of the best that America can 
produce is another. Provision for property ownership of what 
Dr. Branson calls the homeless thousands of towns and cities 
is another. Another is the creation of a wholesome sentiment 
of fair play on the part of citizens in that government services 
received must be paid for and that it is a part of citizenship to 
support its government. Still another is the difficult problem 
of giving justice and fair play to the negro. The Southern 
states, in conformity to sound principles and experience, have 
determined upon policies of race relationships. These policies 
have proved wise and have been sustained by the findings of able 
students and of international scientific societies in some in- 
stances. The policies are clear cut and based exactly on right 
and justice to the whole people. It is, therefore, all the more 
important that in the promotion of these policies the funda- 
mentals of justice, sympathy, co-operation and fair play shall 
prevail in all matters of race relationships. This is the spirit of 
North Carolina. It is not the spirit of Carolina, for instance, 
that one white citizen should coerce a negro to purchase, with 
his surplus moneys or services, an expensive automobile at high 
price while another white citizen denounces him severely for 
the ownership and operation of such a car. This extreme ex- 
ample, and all others, suggest the necessity of consistent and 
equitable conduct that will bear the test of succeeding years. 
Citizens and government alike must abide by the principles of 
service here, as elsewhere. 



92 Community and Government 

131. Government supreme. But in all earnest efforts to 
magnify the great American tradition of government based upon 
service to the people, there must be constant reminder that it is 
nevertheless government ! and that it renders no special privilege^ 
service or political favor to persons beyond the rights of all the 
people. There must develop no ideals which tend toward the 
demand upon a government for selfish services or for tasks not 
consistent with the technique of government and the rights of 
future generations. The great goal is to so build government 
that its principles and science of organization shall both promote 
all the forms of service and at the same time protect, by its 
power and political, as well as social, control, the rights and 
lives of the citizens. This government of a democracy is there- 
fore a powerful co-operative project in which the citizens 
abide by the judgment of the majority of all the people. This 
is the nation, the America 

boru of the longing of the ages, 
By the truth of the noble dead 
By the faith of the living fed 

To become citizens anew is the task to which "we can dedicate 
our lives and our fortunes, everything that we are and every- 
thing that we have." 

132. Co-operation and projects. Part V is not an analysis 
of the problems of national government on the one hand, of 
Americanism on the other : it is a challenge to find and enact the 
truest modes of present-day United States of America citizen- 
ship. The forms of citizen co-operation, then, in this part will 
comprise a complete summary of the entire projects of the man- 
ual preceding. It is largely a review, but keeping in mind the 
larger national ideals. There are, however, many special proj- 
ects which will contribute strong programs. 

Little or no mention has been made of the radicals and va- 
rious forms of bolshevism commonly being interpreted. Make 
a classified study of the forms of organized unrest in this coun- 
try and compare them with the ideals of our American gov- 
ernment. 

Make out, from a careful study of each of the platforms of 
the political parties, a chart classifying their attitudes toward 



Community and Government 93 

the great problems of America today; their omission or unsat- 
isfactory statements toward these problems. 

Review the principles of civil government underlying the 
executive, legislative and judicial branches of the national gov- 
ernment. 

Work out a chart, listing each of the ten departments of 
national government, giving the cabinet officers in charge and 
a detailed functional statement of all services rendered to the 
people. Why is health classified under the secretary of war? 

Make a chart showing classification of the principal most 
difficult social problems that endanger our society. Which ones 
are attacked by government directly. Which one indirectly 
by citizen efficiency and wholesome ideals 1 

Classify all causes of non-co-operation in civic life. Is Kip- 
ling's philosophy (1) right; (2) possible of achievement? 

"It ain't the guns nor armament, nor funds that they can pay, 
But the close co-operation that makes them win the day. 
It ain't the individual, nor the army as a whole, 

But the everlastin' teamwork of every bloomin' soul." 



PART VI 

PLANS OF STUDY AND BIBLIOGRAPHY 

133. Wealth of material. A search for suitable readings 
and guidance in the field of citizenship and social problems re- 
veals such a wealth of material in general books, periodicals, and 
special publications that many happy choices may be made. In 
fact it would be very difficult to find a field so alive with new 
and wholesome contributions. And for the reason that there are 
so many good things from which to choose (and much also that 
is worthless and unwholesome) it is all the more important to 
exercise the best of judgment in the selections to be made. One 
wishes to read everything! There are the good old books of 
standard contribu,tions and the fine new books with appeal on 
every page. How they challenge to enjoyment and achievement. 
But it is evident for the average individual among us all, and 
for the average group among us, only a relatively small number 
can be used to advantage. In listing, therefore, certain books 
and other publications it must be remembered that no attempt 
is made to list all the good things. But that all that are listed 
may be termed at least relatively good. The plan of listing is 
to emphasize the first five or six under each division as being 
perhaps the best adapted to the particular purposes of this man- 
ual. Following these are other good titles. The divisions are 
the same as those in the manual except that a group of readings 
is given to apply to the study of general social problems, not 
primarily related to city or town or country or government but 
to the progress and welfare of society, and therefore applying 
to all divisions alike. They may best be classed upder Part V. 

134. Active citizenship. There is another very important 
consideration with reference to the readings in their relation to 
the plan of study provided by this manual. It is a manual not 
simply for learning and study, as fundamental and important as 
that is, but a manual for active citizenship. Reading, therefore, 
is accompanied with re-created interests and the willingness 
to do. The method of teaching citizenship is that of learning 
through the project method or the activity medium of learning 
and doing. The manual, therefore, itself suggests minimum and 
maximum information and action. 



Community and Government 95 

The fact should be emphasized that the manual is not itself 
a manual of voting or citizenship. There are very definite places 
and sources from which such information can be obtained. But 
it does undertake to present the substance of a minimum infor- 
mation which every citizen in North Carolina ought to have ; 
and to present this minimum in relatively unteehnical forms 
and in harmony with a practical plan of learning and doing. 
The manual, therefore, may be used to some extent without the 
accompaniment of books ; and then followed later by specialized 
subjects chosen by the group; for which special subjects, then, 
suitable added readings should be selected. 

Several plans of study are available. Suppose some of these 
be considered. First, suppose the meetings be begun with the 
outlines of the manual alone as the basis. The meetings coujd 
be planned as follows : 

135. First Meeting: The Scope of Services Rendered to the 
Citizen by the Government. This meeting would consider the 
contents of the entire manual. What are the fundamental types 
of government — national, state, city, town, county? Does the 
average citizen think of government in terms of so immediate and 
real partnership as the local processes of government about us? 
In what do these processes consist? Can each member of the 
group outline the services which a city or town ought to render ? 
a county? a state? Can any citizen be well informed who does 
not know at least the scope of these services? A good leader 
would be all that would be necessary if each member possesses 
a copy of the manual. 

136. Second Meeting: The Meaning of "Woman's New Part 
in Government. Here again the manual might be made the basis 
of the meeting. A careful discussion of the topics of Part I in 
which agreement and disagreement as to fundamentals might 
be made. In Part I, for instance, paragraphs 1, 2, 3, which is 
the greatest contribu,tion to modern democracy? What other 
contributions may he added ? Is the dream of a new fairy de- 
mocracy a fair one ? Is it fair to assume that every woman may 
have three professions? Are the assumptions that woman's 
entrance into formal government will better the great institu- 
tions a fair assumption? And especially, assign as the objec- 
tives of the meeting the listing of specific and practical ways 



96 Community and Government 

in which woman in government will contribute to bettering 
women 's professions ; the home ; the school ; the church ; the 
state; the community; and industry. If the meeting wishes to 
reach some definite convictions and high grounds, easily appli- 
cable to all alike, this assignment will bring results. Good lead- 
ership is necessary. 

137. Third Meeting: The Study of Town and City Govern- 
ment. Assign to the several leaders for short reports the topics 
of the several aspects of municipal social services : city planning, 
education, health and sanitation, recreation, public works and the 
others. Expect each member of the group to be able to enumer- 
ate the majority of services upder such head. Has your par- 
ticular community organized under these divisions? Is it rend- 
ering reasonable services in each? Is it typical of good com- 
munity government of citizens, for and by citizens? What sug- 
gestions are already in the minds of the group for adding to 
its services — additions to be made by citizen-help in practical 
and sympathetic ways, not by destructive critical methods? 

138. Fourth Meeting: Detailed Study of Specific Problems. 
But the interest created in the last meeting was such as to require 
continuation of the study of certain specific problems. Assign, 
therefore, the special topics that are most apropos in this par- 
ticular community. It may be the schools. Classify the schools 
according to paragraph 62. Or Health? Classify the services of 
the community according to the schedules. Whatever topics are 
appropriate to study, make suitable assignments and invite lead- 
ers in these departments to discuss their situations and their 
problems. As many meetings as may be desired, or sub-commit- 
tee meetings, may be devoted to the specific problems of the 
community. 

139. Fifth Meeting: Things to Be Done. By the time a 
special study of the departments of service has progressed it will 
become evident that there is much that can be done in concrete 
study of the local situations and in citizen co-operation with gov- 
ernment officials. Assign, therefore, specific tasks to be investi- 
gated or undertaken by members of the group. Choose the things 
that will be profitable to the community and the group as well. 
Let the entire group adopt a standard method of study, inquiry, 
investigation and co-operation with government officials. Let 



Community and Government 97 

this method insure common sense methods of approach, sym- 
pathetic interest, patient understanding, non-interference with 
official functioning, generous motives. In the text are suggested 
many things that can be done. It must be remembered that 
there is no intention that all or even a small part of all the 
questions and projects suggested are possible or practical and 
feasible. And above all, the number and variety, put down only 
as suggestion and review of the field, should not be allowed to 
confuse the group into feeling that there is too much to be done 
to begin. A single project might be worth the whole year's 
work. 

140. Sixth Meeting: The County Government. The town 
is so closely related to the county (for every town is in a county 
and parts of its government related) that by this time it will 
be clear that the citizen's knowledge is deficient unless it in- 
cludes the county. Assign, therefore, one meeting to the study 
of what constitutes county governmental services, as in the case 
of previous meetings of city government. Insure that every 
member of the group knows at least what county government 
means and the scope of its activities. 

141. Seventh Meeting: Intensive Studies and Projects. As 
is the case of the city community, assign special tasks of study 
and investigation in the county. Ask the county officials to 
come in and tell you about their work. How little do the mem- 
bers know? How interested will they be? Special projects 
of citizen inquiry and co-operation should be included; a study 
of the county resources might be well. Select topics as indi- 
cated above. 

142. Eighth Meeting: State Government. But, the county 
officials tell you the state has much to do with their problems, and 
with the problems of the town and city as well. What are these 
relationships and what has the citizen to do with them? Assign 
Part IV, as previously to insure that each citizen in the group 
knows what the state services are. Is it fair to expect to vote 
and improve public services without at least the knowledge of 
the departments now existing as listed in this division? 

143. Tenth Meeting: Special Problems. Assign for special 
interest and study several specific problems for study: Public 
WeKare, Public Health, Public Schools. Master the state system 



98 Community and Government 

and details of operation. Have representative of whatever de- 
partmnts studied come from Ealeigh and interpret his prob- 
lems and organization. The same methods applied in previous 
programs for city and county may be used. 

144. Eleventh Meeting: The State's Institution of Higher 
Learning. Assign one meeting for a report on the status and 
condition of each of the state's institutions of higher learning; 
brief reports, gathered first hand and up-to-date from the insti- 
tutions themselves. What are they doing? What are their 
needs? Why must they turn away thousands of students? 
What departments of work? What public service? 

145. Twelfth Meeting: The Business of Voting. Devote at 
least one meeting to a careful study of the North Carolina elec- 
tion law, copies of which may be had from the state board of 
elections at Raleigh. Assign topics to leaders on: Elections; 
executive officials; judicial officials; local officials; methods of 
primaries, and others. Insure that each member of the groups 
knows how and when to vote. 

146. Thirteenth Meeting: The Country Life Problem in 
North Carolina. Devote at least one meeting to the Americaniza- 
tion problem of solving the difficulties of country life. Assign 
special topics of good roads, country home conveniences, farming 
conditions, isolation, health and country doctors, the country 
school. Insure that each member of the group knows conditions 
in that county and sympathizes with the problems involved. 

147. Fourteenth Meeting: The Negro in the Community. 
Devote at least one meeting to the study of and inquiry into con- 
ditions of life and labor among the negroes of the community. 
Insure that each member of the group knows what the problems 
are, where the most difficulties lie, and what remedies are at 
hand for citizens to apply. The method of conducting this meet- 
ing will be determined by the local conditions. In many in- 
stances it could be worked out best in co-operation with the 
negroes; in some instances another plan might be acceptable. 
But it is most important in any event. 

148. Fifteenth Meeting: Summary and Publication. One 
meeting should be devoted to summaries of the year's work in re- 
portable forms. The program should be planned at the begin- 
ning with the understanding that at the end of the year the 



Community and Government 99 

club's report would be a document of some value. It should be 
in reports bound together for permanent reference and record; 
and in some instances where a club has done good work it might 
be made a valuable contribution for publication. 

/• 
II. 

149. The second plan of study and work might well be vari- 
ations from the above-mentioned one. Many variations would, of 
course, be chosen by different clubs. Some of these may be men- 
tioned. The first would be, say, the adoption of the essential 
plan above in which the several meetings, in addition to assign- 
ing the manual would assign to different members reports on 
the same topics but to be made from such standard books as 
Dawson's Organized Self Government, or Zueblin's or Beard's 
texts on Municipal Progress, or the University Bulletin and 
County Government and County Affairs. In other words, check 
up fully all matters discussed by cross references carefully 
worked out by leaders. This would be a strong reinforcement 
of the program and manual. It would be well to undertake as 
much of this sort of reading and reporting as would be prac- 
tical, but in no case enough to discourage either individuals or 
groups from undertaking anything. A good variation of the 
above plan would be to devote at least one meeting to the study 
and discussion of the literature on the subject, with authors, 
viewpoints, reviews. Other variations would include the invita- 
tion to outside speakers and specialists to lead off in the pro- 
grams. It is understood, of course, that different clubs will 
add to or subtract from the number of meetings as they see fit, 
and will extend such study intensively or generally over long 
or short periods of time. A special variation would provide 
that the meeting listed as twelfth be placed about the second or 
third of the series in order to interpret the practical matters 
of voting prior to this year's elections. In this case a second 
meeting, then, should be devoted to the personnel to be voted for 
during the coming election, becoming acquainted with not only 
the abstract persons to be elected by the actual names and 
histories of each candidate from township through county, state 
and up to senators. This would not be a bad plan; after the 
election, however, the great problem is to insure that before 



100 Community and Government 

oHier elections come the woman citizenship shall be well in- 
formed, avoiding mistakes of this election or pitfalls so freely 
prophesied. The great responsibility of these meetings rests 
upon preparation for permanent citizenship. 

III. 

150. A third plan of study and work might very well drama- 
tize the entire series of studies. In this instance, the last report 
or summary would be, not a report or series of reports, but a 
drama representing the year's study and activities. It might 
well be worth producing and make excellent contribution to 
community drama as well as to better citizenship. There would 
be numerous ways of dramatizing the program. Detailed assist- 
,ance ought always to be had from either the University Depart- 
ment of Dramatic Literature or from members of the club or 
others who can assist in the perfection of such plans. The 
drama might, for instance, take a single little girl, and follow- 
ing the outlines of the manual, carry her story from the olden 
days with the grandmother to the present days and on through 
full citizenship. This would, of course, need to provide many 
scenes, from the beginning comedy of unreasonable expectations 
that she should ever participate in voting, through later varied 
activities. It would provide for her participation in political 
campaigns, in elections, in meetings of city councils or boards, in 
meetings of boards of education and county boards of commis- 
sioners. It would stage legislative groups in which she was a 
prominent member. In each of the stagings there would be 
in reality the mock performance of all the duties of the woman 
citizen participating fully in the formal duties of government. 
It would mean a careful preparation of dialogues and speeches 
to interpret fully the scope of governmental services and the du- 
ties of citizens. It would mean the enactment of actual laws 
and remedial measures for the betterment of government. A 
type of this sort of thing is suggested, perhaps, in Mr. Charles 
Willis Thompson's "The New Voter: Things He and She 
Ought to Know about Politics and Citizenship." It might well 
take the year's work to result in such a community drama. The 
plan of dramatization might be wrought out through smaller 
efforts at the several meetings as for instance, mock council 



Community and Government 101 

meetings, court trials, general assemblies, in which all the while 
the fundamentals involved in the outlines of the manual were 
never lost sight of. Or, the plan of dramatization might re- 
sult in a community pageant, reciting the history of woman's 
part in government and ending in the great vision of a greater 
American democracy. This plan is not recommended, except in 
the few cases where it can be done well and with skilled direc- 
tion. But if there is power and skill available genuine contri- 
bution can be made to the serious interpretation of a very serious 
epoch in our history. 

IV. 

151. Suitable variations or combinations of all the above 
plans will no doubt be preferable to a majority of clubs. The 
more variety and diversity of methods the better for the cause. 
It will be noted that paragraphs are numbered so that refer- 
ences may easily be made, that assignments may be given with 
facility, and that references to books, topics or action of other 
women may be classified according to topic. An interesting va- 
riation would be to report at each meeting the efforts of other 
women in the same field throughout the state and nation. What 
are other women doing in each of the topics referred to? Still 
another interesting and instructive variation would be the as- 
signment to a committee of the task of preparing a score card 
for, let us say, the city or town community, using as a measuring 
scale the ten points of service described in paragraphs 30 to 60. 
Based upon this scale of points, how does this community rank ? 
Or, a similar measuring scale for rural progress could be based 
upon the twenty points mentioned in paragraph. How does 
the county and rural life of the county score ? Still another im- 
portant plan would be to undertake special studies of the differ- 
ences between the present form of county administration and 
a new form, such as the short ballot or managerial system? Or 
the difference between the present form of city government and 
other forms of commission or manager plan. Finally, important 
meetings could be planned on the special subjects not included 
in this manual if the group wished to attempt perfect and com- 
prehensive grasp of the whole subject of citizenship and gov- 
ernment. Some clubs plan to specialize on child welfare, for 



102 Community and Government 

example ; others will emphasize social service. Special references 
for such studies may be selected from Part V — Bibliography. 

V. 

152. The bibliography itself will offer as many ways of 
study and planning as the group is able to employ. The field is 
unlimited. In addition to reading these volumes and reports 
which will support the special plans of study mentioned or 
chosen, the group might well take special pride in adding to this 
list (a) new books, articles, pamphlets just off the press or being 
announced, and in this way keep up-to-date in the several fields 
of interest and keep attuned to the current progress of woman's 
active citizenship. This plan, together with the plan of report- 
ing woman's activities will make a most fruitful year's con- 
tribution. It will be well to list in actual writing such new 
items and publications as come to the attention of the club. 
These should be listed and numbered under the correct part of 
the manual. Of special importance is the plan of having the 
club placed on the regular mailing list of state and national 
agencies interested in problems of common study. The bibliog- 
raphy below is listed to meet all the plans suggested, Part V 
including suitable references for special studies of these social 
problems. 

153. Part I: In addition to the list below: current pub- 
lications of the national government, especially the bureau of 
education, the children's bureau, the department of agriculture, 
the congressional directory ; the platforms of the political parties ; 
the national league of women voters; current periodicals and 
special lists prepared by local libraries or the University ; other 
current helps. 

1. Dawson, Edgar, Organized Self Government, Henry Holt and Co., 

New York, 1920. 

2. Ames, Edgar W., Citisenship for Democracy, The Macmillan Co., 

New York, 1920. 

3. Bryce, The Eight Honorable Viscount, Democracy, The Macmillan 

Co., New York, 1920. 

4. Thompson, Charles Willis, The New Voter, G. P. Putnam's Sons, 

New York, 1918. 

5. Carroll, D. D., CitisensMp for Women, The University of North 

Carolina, Chapel Hill, 1919. 



Community and Government 103 

6. Follett, Mary, The New State, Longmans Green and Co., New York, 

1919. 

7. Brooks, E. C, Education for Democracy, Eand, McNally and Co., 

Chicago, 1919. 
9. King, W. L. M., Industry and Humanity, Houghton Mifflin Co., 
Boston, 1918. 

10. Wilson, Woodrow, The Hope of the World, Harper & Brothers, New 

York, 1920. 

11. Greenlaw, Edwin, and Hanford, J. H., The Great Tradition, Scott, 

Eoresman, and Co., Chicago, 1919. 

12. Ashley, Eoseoe L., The New Civics, The Maemillan Co., New York, 

1918. 

13. Dunn, Arthur W., Community Civics, Ginn and Co., Boston, 1920. 

14. Beard, Chas. A., American Government and Politics, revised edition. 

The Maemillan Co., New York, 1920. 

15. Hart, Joseph K., Community Organisation, The MacmiUan Co., New 

York, 1920. 

16. Addams, Jane, The Long Road of Woman's Memory, The Maemillan 

Company, New York, 1916. 

See also Part VI. 

List others new : 

154. Part II: In addition to the list below: Special pub- 
lications and literature of American City Bureau, New York, 
Bureau of Municipal Research, New York and Philadelphia, The 
National Municipal League, Philadelphia, the National Confer- 
ence for City Planning, Boston, the National Civic Service Re- 
form League; local chambers of commerce and state organiza- 
tions interested in municipal progress ; local and university li- 
braries; national periodicals such as The American City, the 
National Municipal Review. 

50. Dawson, Edgar, Organised Self Government, Henry Holt and Co., 

New York, 1920. (Part II) 

51. Zueblin, Charles, American Municipal Progress, revised edition, The 

Maemillan Co., New York, 1916. 

52. Beard, Chas. A., American City Government, revised edition. The 

Century Co., New York, 1920. 

53. Goodnow, Frank J., and Bates, F. G., Municipal Government, 

revised edition. The Century Co., New York, 1920. 

54. Burnham, A. C, The Community Health Problem, The Maemillan 

Co., New York, 1920. 

55. Evans, F. N., Town Improvement, D. Appleton and Co., New York, 

1919. 

56. Eightor, C. E., City Manager in Dayton, The ' Maemillan Co., New 

York, 1919. 



104 Community and Government 

57. Cooke, M, L., Our Cities Awake, Doubleday, Page and Co., New 

York and Garden City, 1919, 

58. Nolen, John, New Ideals in the Planning of Cities, American City 

Bureau, New York, 1919. 

59. Moody, W. D., What of the City? McClurg, Chicago, 1919. 

60. Howe, P. C, The Modern City and its Frohlems, Chas. Scribners' 

Sons, New York, 1919. 

61. Addams, Jane, The Spirit of Youth and the City Streets, The Mac- 

millan Co., New York, 1914. 

62. Bradford, E. A., Commission Government in American Cities, The 

Macmillan Co., New York, 1918. 

63. Byington, Margaret, What Social WorJcers Should Know Aiout Their 

Own Communities, Eussell Sage Foundations, New York, 1915 and 
1920. 

64. Woodruff, C. R., New Municipal Programs, D. Appleton and Co., 

New York, 1919. 

List others new: 

155. Part III: In addition to the list below: The Pro- 
gressive Farmer, Raleigh; special reports from counties; and 
county reports and figures from state reports; the 1920 census 
reports on county populations; city versus country; U. S. De- 
partment of Agriculture, numbers 103, 104, 105, 106, especially. 

101. Dawson, Edgar, Organized Self Government (Chapter 28 and ap- 

pendix), Henry Holt and Co., New York, 1920. 

102. Branson, E. C, and others. County Government and County Affairs, 

The University of North Carolina, Chapel Hill, 1918. 

103. Maxey, C. C, County Administration, The Macmillan Company, New 

York, 1919. 

104. Hart, J. K., Community Organisation, The Macmillan Company, 

New York, 1920. 

105. Sims, E. E., The Rural Community, Scribners', New York, 1920. 

106. Douglas, H. P., The Small Town, The Macmillan Company, New 

York, 1919. 

107. Eeports: National Country Life Conference, Ithaca, N. Y., 1919 

and 1920. 

108. Gill and Pinehot, Six Thousand Country Churches, The Macmillan 

Company, New York, 1920. 

109. Phelan, J., Readings in Rural Sociology, The Macmillan Company, 

1920. 

110. Andress, J. M., Health Education in Rural Schools, Houghton 

Mifflin Co., Boston, 1919. 

111. Woofter, T. J., Teaching in Rural Schools, Houghton Mifflin Co., 

Boston, 1918. 



Community and Government 105 

112. Curtis, H. S., Play and Becreation for the Open Country, Ginn and 

Co., Boston, 1914. 

113. Groves, B. C, Bural Problems of Today, The Association Press, 

New York, 1919. 

114. Galpin, C. J., Bural Life, The Century Co., New York, 1919. 

115. Mormon, The Principles of Bural Credit, The Maemillan Company, 

New York, 1917. 

List others new: 

156. Part IV: In addition to the list below: Reports of 
the state departments as listed in Part IV of this manual; the 
Consolidated Statutes; the platforms of the political parties in 
the state ; the bulletin of the state board of charities and public 
welfare; the census reports for 1920. 

151. Dawson, Edgar, Organised Self Government (Part III), Henry Holt 

and Co., New York, 1920. 

152. Thompson, Charles Willis, The New Voter, G. P. Putnam's Sons, 

New York, 1918. 

153. Peel, W. J., Civil Government of North Carolina and the United 

States, B. F. Johnson, Eichmond, 1917. 

154. Plehn, C. A., Public Finance, The MacmUlan Co., New York, 1920, 

revised. 

155. The North Carolina Historical Commission^ Directory of State and 

County Officials, Ealeigh, 1919. 

156. The North Carolina Blue Booh, Ealeigh, 1918. 

157. The North Carolina Manual, Ealeigh, 1920. (Copy of the 1919 

edition may be borrowed from the University library.) 

158. The University of North Carolina, The North Carolina Tear Book, 

Chapel Hill, 1918, 1919, 1920. 

159. ' The Secretary of State, North Carolina Election Law, Ealeigh, 1919. 

State newspapers and special commercial and other reports. 
List others new: 

157. Part V: In addition to the list below: References 
as given in Part I; national journals such as The Survey, The 
Family, New York; current periodicals; the bulletin and out- 
lines of child study of the State Department of Charities and 
Public Welfare ; reports of special institutions and agencies for 
welfare, such as the National Conference for Social Work, the 
National Bureau of Information. 

201. Dawson, Edgar, Organised Self Government (Parts IV and V), 
Henry Holt and Co., New York, 1920. 



106 Community and Government 

202. Thompson, Charles Willis, The New Voter, G. P. Putnam's Sons, 

New York, 1918. 

203. Young, James T., The New American Government and its Worlc, 

The Macmillan Co., 1919. 

204. Parsons, G., The Land of Fair Flay, Chas. Seribners' Sons, New 

York, 1920. 

205. Mecklin, J. M., Social Ethics, Harcourt, Braee, and Howe, New York, 

1920. 

206. Weeks, A. D., The Psychology of Citizenship, A. C. MeClurg & Co., 

Chicago, 1917. 

207. Eobinson, H. E., Preparing Women for Citisenship, The Macmillan 

Co., New York, 1919. 

208. Jenks, J. W., Governmental Action for Social Welfare, The Mac- 

millan Co., New York, 1919. 

209. Cabot, E. C, Social Work, Houghton Mifflin Co., Boston, 1919. 

210. Todd, A. J., Scientific Spirit in Social Work, The Macmillan Com- 

pany, New York, 1919. 

211. Ellwood, C. A., Sociology and Modern Social Proilems, revised, 

American Book Co., New York, 1918. 

212. Cleveland, V. A., and others. Democracy in Reconstruction, Houghton 

Mifflin Co., Boston, 1919. 

213. Hill, H. W., The New Public Health, The Macmillan Co., New York, 

1916. 

214. Goodsell, W., History of the Family, The Macmillan Co., New York, 

1915. 

215. Burch and Patterson, American Social Problems, The Macmillan Co., 

New York, 1919. 

216. Eausehenbush, W., Christianizing the Social Order, The Macmillan 

Co., 1912. 

217. Loob, S. I., Everyman's Child, The Century Co., New York, 1920. 

218. Beard, Mary A., A Short History of the Labor Movement, Harcourt, 

Brace and Howe, New York, 1920. 

Many others new and old: 



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